GIFT 


A  Study  in  County  Jails 
in  California 


300 
367 


Made  by  the 

State  Board  of  jCharities  and  Corrections 

411  Cainjuiiding,  San  Francisco 


ll  1916 


CALIFORNIA 

STATE  PBINTINQ  OFFICE 
1916 


A  Study  in  County  Jails 
in  California 


Made  by  the 

State  Board  of  Charities  and  Corrections 

411  Call  Building,  San  Francisco 


1916 


CALIFOBNIA 
STATE  PRINTING  OFFICE 

1916 
23457 


TABLE  OF  CONTENTS. 


PAGE 

SUMMARY  OF  FINDINGS 5 

MAP  OF   CALIFORNIA    (Insert) 5 

CLASSIFICATION    OF    COUNTIES.. 6 

REASONS    FOR   A    STATE    SYSTEM 9 

A   STUDY   OF   31,000   COUNTY  JAIL   PRISONERS 18 

STATISTICAL    TABLES 25 

SOME    MODERN    INSTITUTIONS   FOR    MISDEMEANANTS 102 

LAWS  SPECIALLY  AFFECTING  COUNTY  JAILS—  ._    107 


Our  findings  show  that — 

For  the  better  care  of 

MISDEMEANANTS       PETTY  OFFENDERS 
CALIFORNIA   NEEDS 

1.  Correctional  institutions — agricultural  and  industrial — managed  by 

the  state. 

2.  Custodial   institutions   for   drug   habitues,   inebriates,    and   mental 

defectives. 

3.  Indeterminate  sentence  for  all  misdemeanants. 

4.  Thorough  examination  before  commitment  and  possible  transfer 

from  one  state  institution  to  another. 


REASONS  FOR  A  STATE  SYSTEM  AS  OUTLINED 

ABOVE 

1.  State  laws  have  been  violated  in  most  cases. 

2.  Migratory  men  should  be  cared  for  by  the  state  rather  than  by  the 

county. 

3.  The  "floater  custom"  is  merely  "passing  the  buck." 

4.  Uniformity  of  treatment  is  lacking. 

5.  Short  sentences  do  little  good. 

6.  Recidivism  would  be  reduced. 

7.  Sanitary  conditions  could  be  economically  introduced. 

8.  Enforced  idleness  would  be  displaced  by  useful  labor. 

9.  Discipline  would  be  improved. 

THE  COUNTY  JAIL  SHOULD  BE  USED 

for  the 

DETENTION  OF  PERSONS  AWAITING  TRIAL 
NOT  FOR  THOSE  SERVING  SENTENCE 


STATE   BOARD   OP    CHARITIES   AND    CORRECTIONS. 


GEOGRAPHICAL   GROUPING   OF   COUNTIES    USED    IN    THIS    BULLETIN. 


Imperial 
Los  Angeles 


Southern   California. 

Orange 
Riverside 


San  Bernardino 
San  Diego 


Alameda 
Contra  Costa 
Marin 


Bay  Region. 

Napa 

San  Francisco 

San  Mateo 


Santa  Clara 
Sonoma 


Coast  Counties   (not  included  above). 

Del  Norte  Monterey 

Humboldt  San  Luis  Obispo 

Mendocino  Santa  Barbara 


Santa  Cruz 
Ventura 


Fresno 

Kern 

Kings 


Butte 
C'olusa 
Glenn 
Placer 


San  Joaquin  Valley. 

Madera 
Merced 
San  Joaquin 

Sacramento  Valley. 

Sacramento 

Solano 

Sutter 


Stanislaus 
Tulare 


Tehama 

Yolo 

Yuba 


Amador 
El  Dorado 
I.assen 
Modoc 


Mountain   Counties. 

Nevada 
Plumas 
San  Benito 
Shasta 


Sierra 
Siskiyou 
Trinity 
Tuolumne 


COUNTIES   IN   WHICH   THERE   IS  A  CITY  JAIL  AT  THE  COUNTY  SEAT. 


Alameda 

Butte 

Colusa 

Glenn 

Humboldt 

Imperial 

Kings 


Los  Angeles 


Mendocino 
Modoc 
Monterey 
Riverside 
Sacramento 
San  Benito 
San  Bernardino 
San  Diego 
San  Francisco 


San  Luis  Obispo 

Santa  Barbara 

Santa  Clara 

Santa  Cruz 

Sonoma 

Tolo 

Yiiba 


N.  B. — In  other  counties  the  county  jail  serves  also  as  a  city  jail  for  the  county  seat. 


A   STUDY   IN    COUNTY   JAILS. 


GROUPING  OF  COUNTIES  ACCORDING  TO  SIZE. 


Alameda 


Fresno 
Sacramento 


Large  size   (over  100,000). 
Los  Angeles 

Second  size   (50,000  to  100,000). 

San  Bernardino 
San  Diego 


San  Francisco 


San  Joaquin 
Santa  Clara 


Butte 

Contra  Costa 
Ilumboldt 
Kern 
Maria 


Third  size   (25,000  to  50,000). 

Orange  Santa  Cruz 

Riverside  Solano 

San  Mateo  Sonoma 

Santa  Barbara  Tulare 


Imperial 

Kings 

Mendocino 

Merced 

Monterey 

Xapa 


Fourth  size   (10,000  to  25,000). 

Nevada  Stanislaus 

Placer  Tehama 

San  Luis  Obispo  Ventura 

Shasta  Yolo 

Siskiyou  Yuba 


Alpine 
Amador 
Calaveras 
Col  usa 
Del  Norte 
El  Dorado 
Glenn 


Fifth  size   (less  than   10,000). 

Inyo  Plumas 

Lake  San  Benito 

Lassen  Sierra 

Madera  Sutter 

Mariposa  Trinity 

Modoc  Tuolumne 
Mono 


STATE   BOARD   OF    CHARITIES   AND    CORRECTIONS. 


STATISTICAL  TABLES. 
Prisoners   Received   in   County  Jails  in   1914. 

TABLE  No.     1.  General  classification,  by  groups  of  counties. 

TABLE  No.    2.  Women  prisoners,  by  counties. 

TABLE  No.     3.  Ages  of  prisoners,  by  counties. 

TABLE  No.     4.  Birthplace  of  prisoners,  by  counties. 

TABLE  No.     5.  Length  of  time  in  county  before  arrest,  by  counties. 

TABLE  No.     6.  Same  by  groups  of  counties. 

TABLE  No.'    7.  Same  in  percentages. 

TABLE  No.     8.  Length  of  time  in  state  before  arrest,  by  counties. 

TABLE  No.     9.  Same  by  groups  of  counties. 

TABLE  No.  10.  Same  in  percentages. 

TABLE  No.  11.  Length  of  time  in  United  States  before  arrest. 

TABLE  No.  12.  Same  by  groups  of  counties  and  in  percentages. 

TABLE  No.  13.  Special  racial  and  national  groups,  by  counties. 

TABLE  No.  14.  Same  by  groups  of  counties. 

TABLE  No.  15.  Occupations  of  prisoners,  by  counties. 

Prisoners   Discharged   From  County  Jails  in  1914. 

TABLE  No.  16.  Prisoners  not  charged  with  crime,  by  counties. 

TABLE  No.  17.  Prisoners    charged    with    misdemeanors    but    not    convicted,    by 

counties,  and  by  charges. 

TABLE  No.  18.  Prisoners  convicted  of  misdemeanors,  by  counties,  and  by  offenses. 
TABLE  No.  19.  Sentences  for  misdemeanors,  by  counties. 
TABLE  No.  20.  Same  summarized.     Counties  grouped  according  to  size. 
TABLE  No.  21.  Same.     Counties  grouped  geographically. 
TABLE  No.  22.  Sentences  for  assault,  by  counties. 
TABLE  No.  23.  Same  for  disturbing  the  peace. 
TABLE  No.  24.  Same  for  drunkenness. 
TABLE  No.  25.  Same  for  petit  larceny. 
TABLE  No.  26.  Same  for  vagrancy. 

Additional  Tables. 

TABLE  No.  27.  Officers,  prisoners,  population,  area,  proportions,  by  counties. 
TABLE  No.  28.  Movement  of  population  in  county  jails,  fiscal  year  ending  June  30, 

1915. 
TABLE  No.  29.  Cost  of  maintenance  of  county  jails,  fiscal  year  ending  June  30, 

1915. 

TABLE  No.  30.  Number  of  prisoners  in  county  jails,  June  30,  1915. 
TABLE  No.  31.  Same,  December  31,  1915. 


A   STUDY   IN    COUNTY    JAILS. 

NEED  OF  STATE  INSTITUTIONS  FOR  MISDEMEANANTS 

To   Displace  the  County  Jails  as   Places  of  Serving  Sentence. 

Some  interesting  speculations  as  to  the  causes  of  crime  have  occupied 
the  attention  of  the  public  this  year.  One  widely-read  journal  has  pro- 
pounded the  theory  that  the  extensive  use  of  probation  and  parole  was  to 
blame  for  the  "wave  of  crime"  that  "swept  the  state"  in  January. 
Doubtless  the  probation  and  parole  systems  are  as  yet  far  from  perfect, 
but  the  State  Board  of  Charities  and  Corrections  has  discovered  a  still 
weaker  link  in  the  chain  of  criminal  procedure.  It  is  the  county  jail. 
The  misdemeanants  who  fill  our  county  jails  have  received  less  attention 
from  thoughtful  people  than  have  any  other  group  of  offenders. 

Present  methods  unscientific.  Under  our  present  laws  the  pro- 
cedure is  roughly  as  follows:  A  man  is  arrested  for  vagrancy  or 
drunkenness.  Presumably  he  is  guilty  of  the  specific  charge.  He  is 
locked  up  in  a  city  or  county  jail  and  in  a  day  or  so  is  taken  to  court. 
If  the  judge  be  lenient,  he  may  discharge  the  prisoner  or  give  him  five 
days  in  jail.  If  the  judge  be  severe,  he  may  sentence  the  prisoner  to 
60  or  90  days.  All  this,  mind  you,  is  done  with  very  little  reference  to 
the  man's  physical  or  mental  condition,  his  habits  of  life,  past  history 
or  future  possibilities.  He  comes  out  of  jail  sometimes  better  and  some- 
times worse  physically,  but  usually  with  less  ambition,  less  self-respect, 
more  knowledge  of  vice  and  crime,  more  bitterness.  In  a  few  weeks  at 
most  he  will  be  back  again.  If  he  is  defective  from  birth,  he  is  bound  to 
fail.  If  he  is  normal,  but  has  formed  habits  of  recklessness,  irresponsi- 
bility, intemperance  and  vice,  the  jail  sentence  can  not  replace  these 
habits ;  more  likely  it  will  accentuate  them.  Suppose  the  man  is  not  sent 
to  jail,  but  is  discharged  with  orders  to  leave  town  in  an  hour.  How 
much  better  off  is  he?  Granted  that  he  has  violated  some  law,  what 
assurance  has  the  community  that  he  will  not  repeat  the  offense?  He 
has  simply  gone  on  to  the  next  county  unknown  and  unwelcome.  An 
already  overdeveloped  "ivanderlust"  has  been  gratified;  hatred  of 
organized  society  is  increased.  Instead  of  an  upward  lift,  we  have  given 
the  man  a  downward  push. 

Need  of  examination  and  different  institutions.  How  much  better 
it  would  be  if  we  examined  the  man  to  determine  his  heredity  and  his 
habits,  his  physical  condition,  the  circumstances  attendant  upon  his 
lawbreaking,  his  occupation,  his  financial  status,  whence  he  came  and 
Avhy.  Then  some  intelligent  opinion  might  be  formed  as  to  the  man's 
real  needs.  But  whatever  his  needs  may  be,  can  a  county  jail  meet 
them?  Obviously  not.  What  jail  is  a  sanatorium  for  the  physically 
sick?  What  jail  teaches  trades  or  even  habits  of  work?  What  jail 


10  STATE   BOARD   OF    CHARITIES   AND    CORRECTIONS. 

segregates  the  mentally  defective  ?  What  jail  is  prepared  to  care  for  the 
insane,  the  inebriate  or  the  drug  habitue?  In  addition  to  knowledge  of 
the  misdemeanants  we  need  institutions  of  a  new  type  for  their  care. 
For  the  unemployed,  incidental  offenders,  we  need  lodging  houses  and 
labor  exchanges.  ( These,  indeed,  are  not  altogether  lacking,  but  what  we 
have  are  inadequate.)  For  the  mentally  defective,  we  need  permanent 
commitment  to  institutions  of  the  farm-colony  type.  For  the  inebriates 
and  drug  habitues,  we  need  'indefinite  commitment  to  places  of  a  similar 
nature,  with  more  provision  for  medical  care.  For  the  normal  but 
rebellious  men,  we  need  an  indeterminate  sentence  to  institutions  indus- 
trial and  agricultural  in  character  where  discipline  and  training  are 
emphasized. 

CONVICTED  MISDEMEANANTS  SHOULD  BE  WARDS  OF 
THE  STATE. 

They  violate  state  laws.  Misdemeanants  should  be  wards  of  the 
state  because  most  of  them  who  are  sentenced  to  jail  have  violated  state 
laws  rather  than  local  ordinances.  The  United  States  Government  has 
the  custody  of  persons  charged  or  convicted  with  violating  federal  laws. 
Why  is  it  less  logical  for  the  state  to  have  the  custody  of  persons  who 
violate  its  laws?  The  exact  proportions  of  offenders  against  the  Penal 
Code  and  of  those  who  break  some  city  or  county  ordinance  can  not  be 
.stated.  But  it  should  suffice  to  say  that  four  of  the  five  leading  offenses 
are  violations  of  the  Penal  Code.  They  are:  Assault  (P.  C.  240-246)  ; 
disturbing  the  peace  (P.  C.  415);  petit  larceny  (P.  C.  484  ff)  •  and 
vagrancy  (P.  C.  647).  Drunkenness  in  a  public  place,  the  last  of  the 
five  principal  misdemeanors,  is  covered  by  local  ordinances.  Of  the 
remaining  29  offense  groups  listed  in  our  tabulation,  23  represent  pri- 
marily the  breaking  of  state  laws.  Hence,  without  exact  statistics,  we 
are  very  sure  that  a  large  majority  of  those  who  receive  jail  sentences 
have  violated  the  Penal  Code  and  are  on  this  ground  properly  wards  of 
the  state.  The  legislature  of  Indiana  in  1913  accepted  the  logic  of  this 
argument  and  established  a  state  institution  for  misdemeanants 
(Indiana,  Acts  of  1913.  Chap.  236,  approved  March  14,  1913),  thus 
setting  a  precedent  for  California. 

Residents  of  the  State  but  of  no  particular  county.  Fully  one-third 
of  the  men  imprisoned  in  county  jails  have  not  been  in  the  county  over 
a  week  before  their  arrest.  At  least  this  is  the  result  of  a  study  of  over 
30,000  prisoners  held  in  county  jails  in  the  course  of  the  year  1914. 
Furthermore,  nearly  one-half  of  them  had  not  been  in  the  county  where 
they  were  apprehended  more  than  one  month.  Over  against  this  fact  is 


A   STUDY    IN    COUNTY    JAILS.  11 

our  discovery  that  three-fourths  of  these  men  had  been  in  California 
more  than  a  year,  and  over  one-half  of  them  had  been  in  the  State  more 
than  five  years.  These  figures  show  rather  strikingly  that  the  people 
(97  per  cent  men)  imprisoned  in  our  county  jails  belong  for  the  most 
part  to  the  State  but  are  not  residents  of  any  particular  county. 


Legend. 
Less  than  one  year  in  the  State 21.3%  (A) 

Over  one  year  in  State,  less  than  one 

year  in  county 42.5%   (B) 

Over  one  year  in  county 36.2%    (C) 


FIG.  1. 


Figure  1  shows  graphically  that  over  one-half  of  the  men  who  had 
been  in  California  over  a  year  had  not  been  that  length  of  time  in  the 
county  where  arrested.  A  detailed  statement  of  these  facts  appears  in 
Tables  7  and  10.  This  figure  does  not  take  account  of  the  three  largest 
counties  where  most  transients  go  only  to  the  city  jails. 

"Floater"  custom.  This  fact  is  tacitly  and  sometimes  avowedly 
admitted  by  courts  and  peace  officers  in  their  widespread  use  of  the 
"floater"  custom.  Considerably  over  one-half  of  the  men  booked  on 
misdemeanor  charges  were  not  convicted  at  all.  For  the  offense  of 
vagrancy  only  30  per  cent  received  jail  sentences,  and  in  four  San 
Joaquin  Valley  counties  only  5  per  cent  of  the  men  charged  with 
vagrancy  were  convicted  at  all.  In  round  numbers  these  counties 
"floated"  2,200  out  of  2,300  men.  They  were  taken  to  court  and  dis- 
missed on  the  condition  of  leaving  town  in  a  few  hours  or  put  on  pro- 
bation or  given  a  suspended  sentence  under  the  same  condition.  The 
reasons  are  that  the  jails  are  full,  the  men  are  known  to  be  nonresidents, 
and  the  cry  of  the  taxpayers  for  economy  is  answered  by  officials  who  are 
forced  to  be  penny  wise  and  pound  foolish.  Sometimes  the  prisoner  is 
taken  to  court  and  dismissed,  "with  orders  to  disappear,"  this  being  the 
entry  in  the  jail  register.  Sometimes  a  jail  sentence  is  imposed,  but 
suspended  on  condition  that  the  "undesirable  citizen"  leave  town  within 
a  few  hours.  Sometimes  a  vagrant  is  paroled.  This,  of  course,  is  a 
joke,  because  he  immediately  moves  on  to  some  other  community  and  is 
lost  sight  of.  We  are  informed  that  in  some  cases  the  prisoner  is  never 
taken  to  court  at  all,  but  is  shown  the  open  door  and  told  to  get  out. 
Occasionally  individuals  and  gangs  are  turned  away  without  being 


12  STATE   BOAED   OF   CHARITIES   AND    CORRECTIONS. 

arrested.  This  practice  we  have  witnessed  ourselves.  The  secretary 
was  in  the  city  of  Marysville  last  year  when  a  large  number  of  men— 
perhaps  200— were  driven  out  by  the  officers.  The  test  of  whether  a 
man  should  be  compelled  to  move  on  or  not  was  the  possession  of  a  meal 
ticket  or  a  receipt  for  room  rent. 

We  find  frequently  such  records  as  the  following  in  jail  registers: 
"ordered  to  disappear,"  "floated,"  "ordered  to  leave  town  in  half  an 
hour, "  "  ordered  to  leave  town  in  two  hours. ' '  No  county  is  willing  to 
assume  the  burden  of  caring  for  all  offenders  or  alleged  offenders  who 
happen  inside  its  borders.  Probably  no  county  ought  to  undertake  this 
task,  but  somebody  should  and  that  body  is  the  state. 

Local  authorities  are  coming  to  recognize  that  the  problem  is  beyond 
them.  Last  fall  representatives  of  several  southern  California  counties 
met  to  consider  a  plan  of  co-operation  in  dealing  with  vagrants.  They 
talked  of  joint  support  of  certain  officers  and  detention  camps  at  points 
of  entry  into  their  territory.  So  far  as  we  know,  the  plan  was  never 
put  into  effect,  and  any  way  its  main  value  is  that  it  constitutes  an 
admission  of  failure  of  the  present  methods  of  handling  misdemeanants 
in  general  and  vagrants  in  particular. 

Present  methods  not  uniform.  There  is  great  lack  of  agreement  as 
to  who  should  be  arrested,  who  convicted,  and  what  treatment  should  be 
given  the  convicted  man. 

Variation  in  arrests.  To  begin  with,  some  officers  are  much  more 
zealous  in  the  making  of  arrests  than  are  others.  Taking  the  State  as  a 
whole,  there  were  imprisoned  in  city  and  county  jails  (Table  No.  27), 
during  the  fiscal  year  1914-1915,  712  persons  for  every  10,000  of  the 
entire  population.  But  in  19  counties  there  were  less  than  100  prisoners 
per  10,000  of  the  population,  while  in  7  counties  the  ratio  exceeded  1,000 
per  10,000.  In  Yuba  County  it  went  above  2,000.  Surely  there  is  not 
so  great  a  difference  in  the  criminality  of  the  several  counties,  nor  do 
the  main  lines  of  travel  furnish  adequate  explanation.  Fundamentally, 
this  Table  No.  27  shows  tremendous  variation  in  the  policies  of  peace 
officers  with  reference  to  two  groups  of  men :  itinerant  casual  laborers 
and  vagrants.  In  some  counties  the  ruling  idea  seems  to  be  to  lock  up 
every  doubtful  character,  while  in  others  leniency  is  the  rule.  There  is 
no  settled  policy  for  the  entire  State.  Officers  in  each  community  are 
feeling  their  way  in  the  dark.  Their  experiments  are  varied,  but  not 
generally  successful. 

Variation  in  convictions.  Not  only  does  the  proportion  of  arrests 
vary ;  the  percentage  of  convictions  likewise  shows  a  wide  range.  Com- 
paring counties  where  there  is  also  a  city  jail  at  the  county  seat,  we  find 
78  per  cent  of  convictions  among  men  booked  on  misdemeanor  charges 


A   STUDY   IN    COUNTY   JAILS.  13 

at  the  county  jail  in  Sacramento,  but  only  43  per  cent  of  convictions  in 
Santa  Clara  County.  Comparing  counties  where  the  county  jail  also 
does  duty  for  the  city,  we  find  85  per  cent  of  convictions  in  Placer,  but 
only  5  per  cent  in  Stanislaus.  The  following  diagram  will  make  this 
more  vivid : 

Sacramento  523  charged,  409  convicted 


Santa  Clara  738  charged,  320  convicted 


Placer      396  charged,  336  convicted 


Stanislaus  916  charged,  48  convicted 


The  scale  in  Figure  2  is  \  inch  per  100  prisoners.  The  shaded  por- 
tions represent  convicted  prisoners,  the  light  portions  men  charged  with 
misdemeanors  but  subsequently  released  without  conviction.  The  facts 
for  other  counties  are  set  forth  in  Table  No.  19. 

Variation  in  sentences.  County  jail  sentences  in  1914  ranged  from 
2  hours  to  2  years.  For  a  single  offense — vagrancy — they  varied  from 
1  day  to  6  months.  Less  striking  but  more  significant  are  the  differences 
in  typical  sentences. 

Averages.  The  lowest  average  sentence,  15  days,  was  found  in 
Marin  County ;  the  highest  average,  123  days,  in  Colusa.  Less  extreme 
variations  are  San  Luis  Obispo,  18  days,  Sacramento,  80  days.  For  dis- 
turbing the  peace  the  average  sentence  varied  from  12  days  in  Marin  to 
104  days  in  Madera.  In  Orange  County  the  drunks  get  an  average  of 
7  days  in  jail,  while  the  same  offenders  in  Santa  Clara  get  59  days.  For 
petit  larceny  the  averages  ran  from  41  days  in  Fresno  to  120  days  in 
Orange  and  122  days  in  Santa  Clara.  Vagrants  were  sentenced  on  the 
average  for  12  days  in  Riverside  County  and  90  days  in  Sacramento. 

Modes.  The  modal  sentence  likewise  displays  great  variation.  In 
10  counties  it  was  10  days.  In  18  counties  it  was  30  days.  The  lowest 
mode  was  5  days  (Sonoma  and  Marin)  and  the  highest  150  days  (Glenn 
and  Modoc).  Let  us  illustrate  this  in  another  way.  Of  the  men  sen- 
tenced for  disturbing  the  peace  in  Marin  County,  43  per  cent  went  to  jail 


14  STATE   BOARD   OF    CHARITIES   AND    CORRECTIONS. 

for  5  days  and  82  per  cent  for  10  days  or  less.  In  San  Bernardino,  on 
the  other  hand,  44  per  cent  "got"  30  days  and  38  per  cent  got  more 
than  30  days,  thus  reversing  the  proportion  in  Marin.  Sixty-three  per 
cent  of  the  sentences  for  vagrancy  in  Fresno  were  for  10  days  or  less, 
and  33  per  cent  were  for  exactly  10  days,  while  in  Sacramento  60  per 
cent  were  for  60  days  or  over. 

Medians.  As  a  further  test  of  the  variations  in  sentences,  we  have 
studied  the  medians.  If  all  of  the  men  sentenced  to  jail  in  1914  were 
lined  up  according  to  the  length  of  their  sentence,  the  sentence  of  the 
man  at  the  middle  of  the  line  would  be  the  median.  In  four  counties  the 
median  was  only  10  days,  while  in  four  other  counties  it  was  60  days. 

Average. 


Colusa,  123  days. 


Marin,  15  days. 

Mode. 


Glenn,  150  days. 
Sonoma,  5  days. 


Median. 


Sacramento,  GO  days. 


Fresno,  10  days. 

FIG.  3.     Variations  in  Typical  Sentences. 

The  preceding  statements  are  based  on  Tables  19-26.  Facts  such  as 
these  just  presented  lead  us  to  suspect  that  the  treatment  of  misde- 
meanants is  determined  by  the  disposition  of  the  judge,  his  theory  of 
punishment,  or  the  capacity  of  the  jail,  but  not  by  a  settled  policy  based 
on  knowledge  of  the  real  needs  of  these  men.  This  striking  lack  of 
uniformity  is  an  argument  for  a  state  system,  as  outlined  before,  to  take 
the  place  of  the  present  county  jail  system. 

Short  sentences  of  little  value.  Although  practice  varies  from  one 
county  to  another,  nevertheless  a  high  percentage  of  convicted  men  serve 
very  short  sentences.  Roughly  speaking,  one-fourth  of  the  men  serve 
10  days  or  less  and  two-thirds  serve  30  days  or  less.  (See  Tables  20 
and  21.)  Remembering  that  many  of  these  men  have  firmly  fixed  habits 
of  idleness,  or  at  best  of  intermittent  work,  excessive  use  of  drugs  and 
liquors  and  other  vices,  the  significance  of  these  short  sentences  becomes 
appalling.  Such  habits  are  not  broken  in  10  days  nor  in  30 ;  much  less 
are  they  replaced  by  industry  and  sobriety.  For  that  matter,  it  is 


A   STUDY   IN    COUNTY   JAILS.  15 

unlikely  that  any  amount  of  time  in  the  average  jail  will  reform  the 
habitual  vagrant,  drunk,  drug  habitue  or  petty  thief.  Then,  again,  it  is 
likely  that  a  considerable  number  of  misdemeanants  are  feeble-minded. 
For  these  nothing  will  suffice  except  permanent  institutional  care. 
Almost  nothing  good  can  be  said  for  the  short  sentence. 

Recidivism.  Recidivism  in  particular  marks  the  failure  of  present 
methods  of  handling  misdemeanants.  It  is  the  boast  of  many  a  man 
that  he  has  been  in  half  the  jails  of  the  State.  Unfortunately  records  do 
not  enable  us  to  make  general  statistical  statements  in  this  regard,  but 
we  have  made  one  very  interesting  study  in  San  Francisco.  Out  of 
500  women  sent  to  the  county  jail  at  Ingleside,  36  were  there  more  than 
three  times  in  three  years.  The  average  number  of  commitments  was  9, 
and  one  woman  was  sent  out  18  times  to  serve  sentences  ranging  from 
10  days  to  6  months.  Drunkenness  and  vagrancy  were  the  most  fre- 
quent charges,  with  a  sprinkling  of  petit  larceny  and  assault.  These 
women  spent  an  average  of  one-third  of  their  time  serving  sentence  in 
the  county  jail,  and  one  woman  spent  nearly  two-thirds  of  her  time 
there.  Just  to  feed  her  cost  the  city  and  county  of  San  Francisco  about 
$175,  and  the  meals  of  the  36  recidivists  cost  about  $2,200.  This,  mind 
you,  takes  no  account  of  those  who  have  been  in  other  jails.  It  is  exceed- 
ingly unfortunate  that  there  are  no  records  to  enable  us  to  get  at  this 
whole  matter  exactly,  for  the  chances  are  that  the  number  of  different 
people  who  go  to  jail  in  the  course  of  a  year  is  much  smaller  than  the 
total  of  170,000.  Also  it  is  probable  that  the  time  spent  in  jail  by  many 
of  these  recidivists  would  amount  to  a  considerable  fraction  of  each  year. 
Hence  to  place  them  for  long  periods  of  time  in  state  institutions  would 
not  cost  much  more  than  intermittent  confinement  in  local  jails.  More- 
over, by  subtracting  the  costs  of  frequent  arrests  and  trials  and  the  value 
of  productive  work  they  could  do  in  state  industrial  institutions,  it  is 
almost  certain  that  we  would  reduce  the  cost  of  caring  for  petit 
offenders. 

Sanitary  conditions  often  poor.  In  regard  to  physical  condition  we 
have  some  very  good  jails — as  jails  go — and  some  that  are  very  bad. 
Sacramento,  Yolo,  Humboldt,  San  Diego,  and  Alameda  counties  have 
jails  which  are  almost  invariably  found  to  be  clean,  light,  and  well  ven- 
tilated, with  the  prisoners  segregated  to  a  considerable  degree.  San 
Bernardino  has  two  prison  camps  where  men  wTork  on  the  roads  eight 
hours  a  day,  eat  plenty  of  good,  wholesome  food,  sleep  in  tents,  and 
receive  35  cents  a  day  for  their  labor.  The  equipment  in  these  camps  is 
far  from  ideal,  but  they  represent  a  real  advance  in  the  handling  of 
petty  offenders.  On  the  other  hand  there  are  conditions  which  are 
almost  inexcusably  bad. 


16  STATE   BOARD   OF    CHARITIES   AND    CORRECTIONS. 

Imperial  County  Jail  consists  of  one  room  with  a  single  cage  of  four 
cells  about  7  by  9  by  7  feet.  There  are  four  bunks  in  each  cell,  thus 
accommodating,  in  a  very  crowded  manner,  16  prisoners.  However,  we 
have  counted  30  men  in  this  cellroom  and  are  informed  by  the  sheriff 
that  it  has  held  as  many  as  44.  There  is  one  toilet  in  the  corner.  This 
was  stopped  up  at  the  time  of  one  inspection  and  sewage  was  running 
out  over  the  floor.  There  is  one  bathtub  in  fair  condition.  Blankets  are 
furnished  and  most  of  the  prisoners  sleep  on  the  floor  or  on  top  of  the 
cage.  During  part  of  the  year  men  serving  time  work  on  the  roads, 
which  is  a  great  boon  to  all  except  the  professional  tramp  and  the 
I.  W.  W. 

San  Joaquin  County  Jail  at  Stockton  was  built  25  years  ago  to  accom- 
modate 80  prisoners.  It  is  fireproof,  but  not  sanitary.  The  vermin, 
instead  of  being  kept  out  by  examination  of  incoming  prisoners,  are 
sprayed  with  antigermine,  the  odor  of  which  pervades  the  entire  jail. 
The  law  regarding  segregation  is  not  complied  with,  and  we  have  seen 
Negroes,  Chinese,  and  white  men  in  the  same  cell.  Witnesses,  men 
awaiting  trial,  and  those  serving  time  are  sometimes  kept  together  in  the 
basement  cells  where  there  is  not  a  particle  of  furniture.  They  sit  and 
sleep  on  the  cement  floors  over  which  are  spread  dirty  mattresses  and 
blankets.  The  light  is  so  poor  that  it  is  practically  impossible  to  read. 
The  food  consists  of  mush,  syrup  and  bread  in  the  morning  and  stew 
and  coffee  and  bread  in  the  afternoon. 

Taking  the  State  as  a  whole,  one-half  of  our  county  jails  are  dark 
and  poorly  ventilated,  one-third  have  inadequate  bathing  facilities, 
one-third  are  overcrowded  at  some  time  during  the  year,  and  five-sixths 
are  violating  the  state  law  as  to  segregation  which  requires:  four 
separate  departments  for  (1)  men  awaiting  trial,  (2)  men  serving 
sentence,  (3)  witnesses,  etc.,  (4)  women.  These  difficulties  might 
conceivably  all  be  met  by  local  authorities,  but  the  expense  necessary 
to  overhaul  the  unsatisfactory  county  jails  would  suffice  to  equip 
several  really  worth  while  state  institutions.  The  latter  would  be  a 
good  investment,  the  former  would  bring  but  poor  returns.  Physical 
conditions  of  the  jails  are  tabulated  in  detail  in  our  Sixth  Biennial 
Report,  page  128  ff. 

Enforced  idleness  injurious.  Enforced  idleness  is  one  of  the  worst 
features  of  the  present  method  of  handling  misdemeanants.  The  great 
majority  of  convicted  men  are  simply  locked  up  in  cages  like  wild 
animals.  They  may  twiddle  their  thumbs,  they  may  exchange  stories 
of  criminal  experience,  they  may  gloat  over  perverted  justice,  they  may 
brood  over  wrongs  done  them  by  society,  or  they  may  sit  in  pious 
penitence!  The  table  on  page  137  of  our  Sixth  Biennial  Report  shows 


A   STUDY    IN    COUNTY   JAILS.  17 

only  8  jails  out  of  58  providing  anything  like  regular  work,  and  in 
most  of  these  only  a  fraction  of  the  convicted  men  are  employed.  But 
how  can  we  expect  idleness  to  reform  any  one  ?  Men  in  jail,  like  other 
human  beings,  have  impulses  which  must  find  some  means  of  expression. 
If  circumstances  repress  the  normal  outlet,  some  perverted  expression 
of  a  perfectly  natural  impulse  will  come  forth.  Hence  the  tendency  of 
jail  life  must  be  to  fix  and  multiply  bad  habits ;  to  exaggerate  inherited 
weaknesses.  Every  educator  knows  that  bad  habits  are  broken  only  by 
putting  good  ones  in  their  places.  Yet  we  try  to  cure  the  wayward 
man  by  repression  instead  of  directing  his  energies  actively  into  socially 
useful  channels. 

The  employment  of  county  jail  prisoners  is  already  provided  for  by 
law  (Penal  Code,  Sec.  1613,  and  Political  Code,  Sec.  4041,  subdivision 
29),  yet  this  is  rarely  done.  San  Bernardino,  Imperial,  Los  Angeles, 
Orange,  San  Joaquin,  Solano,  and  a  few  other  counties  employ  part  of 
their  prisoners  outside  the  jails.  In  some  cases  there  is  no  means  of 
employing  prisoners.  In  many  more  there  are  not  enough  prisoners  to 
be  employed  without  great  loss  financially.  It  is  hard  to  find  satisfac- 
tory men  to  handle  convict  labor,  and  if  this  be  done  by  local  authorities 
the  caliber  of  guards  and  foremen  is  apt  to  be  below  that  of  men  who 
could  be  secured  by  the  state  for  larger  institutions.  The  argument  for  a 
series  of  local  rock-piles,  while  not  lacking  in  force,  fails  to  take  account 
of  the  fact  that  the  rock-pile  has  been  found  financially  unprofitable,  and 
that  it  fails  utterly  to  arouse  the  interest  of  the  men.  As  a  means  of 
developing  self-respect  and  habits  of  industry  the  rock-pile  is  a  com- 
plete failure. 

Discipline  impossible  in  average  jail.  This  enforced  idleness  com- 
bines with  a  crude  congregate  system  of  handling  prisoners  to  make 
discipline  a  farce.  Who  would  think  of  locking  a  lot  of  men  up  in  an 
empty  room  and  expect  them  not  only  to  behave,  but  to  improve  them- 
selves? Lifting  themselves  by  their  bootstraps  would  be  easy  in  com- 
parison. Yet  this  same  impossible  result  is  presumably  supposed  to 
come  from  a  jail  sentence.  As  a  matter  of  fact,  vicious  practices  are 
indulged  in.  We  have  seen  prisoners  playing  "penny  ante"  in  one  of 
the  largest  jails  in  the  State.  The  "Kangaroo  Court"  has  been  found 
in  a  dozen  jails  of  the  State.  This  is  an  organization  of  prisoners  for 
holding  mock  trials.  As  a  form  of  self-government  and  a  means  of 
enforcing  cleanliness  and  order  in  congregate  jails  it  is  not  altogether 
bad;  but  it  has  possibilities  of  injustice  which  make  it  an  institution  to 


2— 234J 


18  STATE   BOARD   OF    CHARITIES   AND    CORRECTIONS. 

be  condemned.     These  facts  appear  from  the  "Rules  of  the  Kangaroo 
Court"  of  Kern  County,  which  follow: 

January  1,  1915. 

"I.     All  persons  entering  here  shall  be  searched  by  the  sheriff  of 
the  Kangaroo  Court. 

II.  The  judge  has  the  power  to  fine  an  inmate  from  one  to  five 
dollars,  to  be  used  for  tobacco  and  sugar  for  inmates. 

III.  All  persons  must  bathe  and  wash  their  clothes  at  least  once 
a  week. 

IV.  Throwing  rubbish  or  spitting  on  the  floor  is  strictly  for- 
bidden. 

V.  Inmates  must  keep  away  from  the  door  and  windows  unless 
wanted  there. 

VI.  Noise  must  cease  at  10  p.m.,  remaining  so  until  7  a.m. 

VII.  The  judge  shall  appoint  inmates  to  do  necessary  work  each 
week. 

VIII.  Any  person  disobeying  above  rules  shall  be  punished  as 
the  judge  sees  fit. 

These  rules  have  been  approved  by  the  Sheriff  of  Kern  County. ' ' 
Such  rules  appear  innocent  enough  on  the  surface,  but  they  are  easily 
made  the  basis  of  extortion  and  persecution. 

Schools  of  crime.  When  all  sorts  of  men  are  thrown  together  in  a 
cage  or  "bull-pen,"  is  it  any  wonder  that  our  jails  are  not  only  breed- 
ing places  for  disease  and  vermin  but  also  veritable  schools  of  crime? 
Where  outside  of  a  jail  would  a  life  of  vice  and  crime  be  so  glowingly 
portrayed  ?  Where  else  would  methods  of  evading  justice  be  so  eagerly 
discussed?  Where  else  would  a  youthful  offender  so  easily  make  the 
acquaintance  of  hardened  criminals?  What  more  appropriate  place 
could  be  selected  for  initiation  into  the  fraternity  of  enemies  of  society  ? 

A  STUDY  OF  31,000  COUNTY  JAIL  PRISONERS. 

A  large  proportion  of  the  facts  on  which  the  preceding  section  is 
based  is  derived  from  a  statistical  study  of  31,000  prisoners,  who  were 
received  in  the  county  jails  of  California  during  the  year  1914.  The 
data  concerning  sentences  served,  etc.,  appertain  to  prisoners  discharged 
in  1914  and  hence  represent  approximately,  though  not  quite  exactly, 
the  same  group." 

'The  figures  for  Alameda  County  are  all  for  prisoners  received  in  1914.  The  figures 
for  San  Luis  Obispo  refer  to  persons  received  and  discharged  in  the  fiscal  year  1914-1915. 


A   STUDY    IN    COUNTY    JAILS.  19 

The  data  were  collected  from  uniform  registers  kept  in  the  various 
county  jails.  This  work  was  done  in  the  main  by  the  secretary  and  one 
of  the  agents  of  the  State  Board  of  Charities  and  Corrections,  who  used 
rough  tabulation  sheets  and  transcribed  the  results  to  blanks  for  each 
separate  county.  The  study  in  Los  Angeles  County  was  made  by 
students  of  the  University  of  Southern  California  under  the  direction 
of  Professor  E.  S.  Bogardus.  In  Alameda  County  the  same  work  was 
done  by  students  of  the  University  of  California  under  the  direction  of 
Dr.  Jessica.  B.  Peixotto.  These  two  county  studies  involved  a  card 
record  of  each  separate  prisoner  from  which  correlated  statistical  tables 
were  later  made  by  the  students.  The  final  tabulations  were  done  in 
the  office  of  the  board  under  the  immediate  direction  of  the  secretary. 
This  work  was  begun  in  January,  1915,  and  continued  with  some  inter- 
ruptions through  March,  1916.  The  data  cover  52  of  the  58  counties 
of  the  State.  The  six  counties  not  studied  have  a  total  population  of 
only  27,000,  and  have  altogether  not  more  than  200  prisoners  a  year. 
Hence  this  investigation  may  be  said  practically  to  cover  all  the 
prisoners  held  in  the  county  jails  of  California  in  one  year.  There  are 
many  questions  unanswered  by  this  study  and  they  are  left  frankly 
unanswered,  because  the  necessary  data  are  not  yet  available. 

General  classification.  From  Table  No.  1  it  is  seen  that  the  prisoners 
studied  fall  into  three  nearly  equal  parts:  convicted  misdemeanants, 
unconvicted  misdemeanants,  felons  and  federal  prisoners.  Lodgers, 
witnesses,  insane,  and  juveniles  are  numerous,  but  constitute  a  rather 
small  proportion  of  the  whole  body. 

Women.  From  Table  No.  2  it  is  seen  that  only  3£  per  cent  of  the 
prisoners  studied  were  women.  In  Tables  Nos.  30  and  31  the  propor- 
tion of  women  is  4  per  cent  and  2^  per  cent,  respectively.  Taken 
together  these  tables  show  that  the  number  of  women  prisoners  is  always 
very  small,  and  that  the  real  problem  has  to  do  with  male  offenders. 

Ages.  Table  No.  3  shows  that  county  jail  prisoners  are  pretty  well 
distributed  over  the  various  age  groups.  The  fact  that  11,500  were 
under  30  years  of  age  suggests  the  possibility  of  doing  some  really  con- 
structive work  under  a  different  system.  But  when  we  consider  that 
these  younger  offenders,  of  whom  3,500  were  not  over  21,  are  not  kept 
separate  from  the  older  men,  we  must  realize  the  inadequacy  of  present 
arrangements. 

In  explanation  of  Table  No.  3,  the  classification — except  as  to  the  first 
group — was  selected  with  a  view  to  the  ease  of  tabulating  from  the 
register.  When  the  first  group  was  made  to  include  those  whose  age  is 
given  as  21,  it  wras  felt  that  youthful  vagrants  would  probably  try  to 


20  STATE   BOARD   OF    CHARITIES   AND    CORRECTIONS. 

appear  to  be  of  age  as  a  matter  of  pride.  Since  beginning  the  tabula- 
tion we  have  come  to  believe  that  this  error  is  in  a  measure  offset  by  the 
men  past  twenty-one  who  hope  in  the  Juvenile  Court  to  escape  the  severe 
penalty  which  might  be  meted  out  in  the  Superior  or  Police  Court. 
The  individual  statements  of  age  are  known  to  vary  greatly  from  the 
truth.  Some  prisoners  apparently  tell  the  officer  "any  old  thing"  to 
have  the  questioning  over  with,  or  "to  see  what  they  can  put  over." 
Some  probably  give  a  greater  age  with  the  hope  of  leniency.  Moreover, 
many  of  the  jailers  regard  the  securing  of  this  information  as  a  joke  and 
make  little  effort  to  get  at  the  truth.  Some  prisoners  are  so  drunk  when 
arrested  that  they  do  not  know  their  own  age.  It  might  be  learned  the 
next  day,  but  a  good  many  jailers  are  indifferent  and  do  not  try.  In 
spite  of  these  numerous  difficulties  and  sources  of  error  we  believe  that 
the  groupings  are  approximately  correct. 

Birthplace.  Table  No.  4  shows  that  a  little  over  one-third  of  the 
county  jail  prisoners  studied  were  foreign  born.  This  proportion 
obtains  with  considerable  uniformity  throughout  the  State,  running 
higher  in  such  counties  as  Fresno  and  San  Diego,  but  dropping  to  one- 
fourth  in  the  smallest  counties. 

In  tabulating  data  concerning  place  of  birth  we  might  well  have  indi- 
cated the  particular  country  in  which  foreigners  were  born.  That  this 
was  not  done  is  due  to  the  fact  that  the  small  staff  had  to  limit  its  task 
at  some  point,  and  this  was  one  of  the  arbitrary  boundaries.  The  item 
"this  county"  does  not  appear  to  represent  the  facts  very  completely. 
While  we  might  expect  to  find  a  very  small  number  of  prisoners  arrested 
in  their  native  county,  the  number  appears  to  be  smaller  than  it  really 
is  because  some  jailers  record  nothing  more  specific  than  the  state. 
The  accuracy  of  the  "place  of  birth"  data  is,  however,  made  greater 
than  of  those  concerning  age.  Still  they  are  not  exact,  for  there  is  more 
or  less  jesting,  deliberate  misrepresentation  and  ignorance. 

Time  in  county.  Tables  Nos.  5,  6,  and  7  show  in  striking  fashion 
the  preponderance  of  the  transient  or  migatory  element  among  our 
petty  offenders.  While  43.6  per  cent  of  all  prisoners  had  been  in  the 
county  a  year  before  their  arrest,  it  must  be  remembered  that  this  figure 
does  not  include  the  enormous  numbers  of  misdemeanants  who  never  get 
beyond  the  city  jails.  Where  there  is  no  city  jail  at  the  county  seat  the 
proportion  is  more  representative;  and  so  we  find  in  San  Joaquin 
County  that  over  one-half  of  the  prisoners  had  not  been  in  the  county 
more  than  a  week  before  landing  in  jail.  This  proportion  may  seem 
unnaturally  high,  but  35  per  cent  of  all  county  jail  prisoners  had  been 
in  the  county  where  arrested  not  to  exceed  one  week,  and  45  per  cent 
were  residents  of  one  month  or  less. 


A   STUDY   IN    COUNTY   JAILS.  21 

As  a  matter  of  fact,  the  correct  figures  are  unquestionably  higher  still, 
for  we  are  sure  that  most  of  those  unaccounted  for  in  the  jail  registers 
are  migratory  men.  In  a  great  many  cases  this  column  in  the  register 
has  been  left  blank.  The  jailers  explain  that  the  fellows  have  not  been 
around  long  enough  to  make  it  worth  while  to  put  it  down !  Another 
excuse  is  that  the  men  do  not  tell  the  truth  and  no  one  in  the  county 
knows  them.  These  facts  lead  us  to  believe  that  the  numbers  of  those 
who  have  been  in  a  given  county  a  very  short  time  before  their  arrest 
are  very  much  greater  than  the  tables  would  make  them  appear.  It  is 
unlikely  that  there  are  compensating  errors  due  to  men  understating 
the  length  of  time  they  have  been  in  the  county,  although  this  undoubt- 
edly occurs  in  isolated  cases. 

Time  in  State.  It  is  most  interesting  to  compare  Tables  Nos.  8,  9, 
and  10  with  those  just  now  under  consideration.  Whereas  a  very  high 
proportion  of  the  prisoners  had  not  been  in  the  county  more  than  a  few 
days,  only  21.6  per  cent  had  been  in  the  State  less  than  a  year.  These 
data  are  believed  to  be  fairly  accurate. 

Time  in  United  States.  Students  of  immigration  will  be  interested 
in  Tables  Nos.  11  and  12,  which  show  that  the  great  bulk  of  foreign-born 
prisoners  had  been  in  this  country  long  enough  to  become  naturalized. 
In  San  Diego,  a  great  many  of  the  recent  arrivals  were  held  for  the 
federal  authorities  on  account  of  illegal  entry  or  smuggling,  but  in  no 
other  county  do  the  statistics  appear  to  be  influenced  in  this  way. 
Hence  it  is  important  to  call  attention  to  the  500  prisoners  who  had  not 
been  in  this  country  over  a  year.  Correlated  statistics  for  San  Fran- 
cisco show  that  one-half  of  these  were  convicted  of  vagrancy.  Whether 
this  would  apply  to  the  State  as  a  whole  we  do  not  know.  It  is  also 
important  to  note  that  three-sevenths  of  all  the  foreign-born  prisoners 
in  San  Francisco  were  convicted  of  vagrancy  (including  begging). 

In  the  statistical  tables  the  category  "all  others"  includes  both  those 
who  had  been  in  the  United  States  over  10  years  and  those  whose  length 
of  residence  in  this  country  is  unknown.  This  combination  is  perhaps 
unfortunate,  but  it  was  rendered  necessary  by  the  way  in  which  some  of 
the  data  were  collected.  There  is  some  compensation  in  the  fact  that 
many  of  those  unaccounted  for  in  the  jail  registers  are  known  to  have 
been  in  this  country  for  more  than  10  years. 

Special  racial  and  national  groups.  (Tables  Nos.  13  and  14.)  In 
the  uniform  jail  register  there  is  a  column  labeled  "race."  Under  this 
head  there  have  been  found  all  sorts  of  classifications  and  designations. 
In  order  to  arrive  at  some  sort  of  uniformity  the  enumerators  have  com- 
piled these  data  under  the  rather  specific  heads,  Mexican,  Indian,  etc. 
This  was  made  possible  by  comparing  the  record  in  the  "race"  column 


22  STATE   BOARD   OF    CHARITIES   AND    CORRECTIONS. 

with  that  in  the  "place  of  birth"  space.  For  example,  a  man  registered 
as  "brown"  and  born  in  Mexico  is  counted  in  the  tabulation  as 
"Mexican."  Likewise  the  terms  "yellow"  and  "red"  have  been 
abandoned  as  entirely  too  indefinite. 

Occupations.  The  figures  in  Table  No.  15  represent  very  nearly  the 
records  as  they  stand  in  the  several  jail  registers.  It  might  have  been 
desirable  to  classify  them  as  is  done  by  the  United  States  Bureau  of  the 
Census,  but  this  was  not  done.  Instead,  the  occupations  listed  represent 
those  encountered  most  frequently  in  the  registers.  Engineers  may  be 
electrical,  civil,  railroad  or  stationary.  Other  doubtful  categories  are 
found,  but  the  outstanding  fact,  in  spite  of  inevitable  inaccuracies,  is 
the  very  large  proportion  of  unskilled  laborers.  Over  one-half  of  the 
prisoners  are  listed  as  common  laborers.  To  these  should  be  added 
many  counted  as  "unknown"  and  "miscellaneous."  The  significance 
of  this  fact  lies  in  the  well  known  connection  between  lack  of  occupa- 
tional training  and  unemployment,  and  between  unemployment  and 
petty  crime.  Apparently  one  line  of  effort  for  the  prevention  of  crime 
lies  in  vocational  guidance  and  industrial  education. 

Offenses.  No  special  effort  was  made  to  classify  the  men  charged 
with  felonies  as  to  the  offense  or  disposition,  because  when  they  are  con- 
victed, with  rare  exceptions  they  are  sent  to  a  state  prison.  The  jail 
registers  also  show  2,400  prisoners  held  as  witnesses,  insane,  suspects, 
lodgers  and  juveniles  without  any  specific  charge.  As  a  matter  of  fact, 
the  total  number  of  such  persons  detained  is  considerably  larger,  but 
they  are  frequently  not ' '  booked ' '  at  all.  Table  No.  16  shows  the  classi- 
fication of  those  registered. 

Tables  17,  18  and  19  show  the  disposition  of  prisoners  charged  with 
the  25  leading  misdemeanors.  "Misdemeanors  not  classified"  include 
in  the  case  of  San  Francisco  265  drug  habitues  convicted  of  violating 
the  state  poison  law.  Some  jailers  failed  to  specify  the  offense  in  many 
cases.  Hence  this  miscellaneous  group  is  unduly  large.  However,  it 
is  clear  that  the  most  frequent  petty  offenses  are:  vagrancy,  drunken- 
ness, disturbing  the  peace,  petit  larceny  and  assault.  We  have  there- 
fore made  special  tables  showing  the  disposition  of  prisoners  charged 
with  each  of  these  five  misdemeanors.  In  these  tables  (Nos.  22-26)  the 
figures  for  the  smaller  counties  are  not  itemized,  but  the  totals  are  given. 

Officers.  So  far  the  discussion  has  dealt  only  with  the  prisoners. 
Table  No.  27  throws  some  interesting  light  on  the  officers— the  sheriffs 
and  their  deputies. 

Deputies  paid  by  sheriff.  In  25  counties  there  are  no  deputy 
sheriffs  paid  by  the  county.  The  sheriff  himself  hires  such  deputies  as 
he  feels  he  needs  and  can  afford  out  of  his  own  salary  and  fees.  With 


A   STUDY    IN    COUNTY    JAILS.  23 

one  exception  these  counties  are  below  the  25,000  mark  in  population. 
Eight  are  between  10,000  and  25,000.  Sixteen  are  below  10,000.  Hence 
this  is  in  the  main  a  problem  of  rural  government.  However,  these 
counties  include  such  towns  as  Modesto  (population  4,034),  San  Luis 
Obispo  (5,157)  and  Woodland  (3,187).  The  sheriffs'  salaries  in  these 
25  counties  range  from  $700  in  Alpine,  to  $6,000  in  Nevada  and  Placer. 
The  arrangement  is  essentially  one  of  farming  out  this  office. 

Average  salaries.  The  average  sheriff's  salary  is  $4,200,  in  addition 
to  which  he  receives  the  $5  per  diem  for  transporting  persons  to  state 
institutions,  various  fees  for  service  in  civil  cases  and  whatever  he  can 
clear  on  the  feeding  of  prisoners.  It  would  be  very  conservative  to 
estimate  $1,000  a  year  for  these  perquisites.  Compare  this  income  of 
$5,000  to  $6,000  per  annum,  with  $2,000,  which  is  the  average  salary 
paid  to  county  superintendents  of  schools,  according  to  the  1915  Blue 
Book.  Compare  the  requirements  of  previous  training  and  executive 
ability,  and  it  is  clear  that  sheriffs  receive  compensation  out  of  all  pro- 
portion to  the  relative  value  of  their  services.  The  average  deputy 
sheriff's  salary  is  $1,170,  which  appears  to  be  a  reasonable  rate. 

Relative  number  of  deputies.  The  ratio  of  paid  deputies  to  the 
population  is  for  the  State  as  a  whole,  11  to  every  100,000.  The  varia- 
tions which  occur  are  to  be  accounted  for  by  differences  in  area,  number 
of  prisoners  handled,  etc.  It  is  also  important  to  bear  in  mind  that 
extra  deputies  are  sworn  in  for  special  purposes,  and  unpaid  deputies 
who  depend  on  their  expense  accounts  for  remuneration. 

In  San  Bernardino  County  we  know  that  a  good  deal  of  work  is  done 
by  unsalaried  deputies  who  doubtless  make  up  for  the  lack  of  salary  in 
various  round-about  ways.  One  of  these  men  said  to  us :  "I  know  how 
to  fix  up  my  expense  account,  and  they  always  do  the  right  thing  by 
me."  This  same  unsalaried  deputy  told  us  of  another  deputy  (whether 
salaried  or  not  we  do  not  remember)  who  made  a  long  trip  out  in  the 
desert  to  serve  some  papers.  He  received  the  customary  ten  cents  a 
mile  and  county  gasoline,  driving  his  own  machine.  He  also  charged 
$2.50  an  hour  for  taking  along  another  county  officer.  Thus  he  must 
have  spent  a  very  profitable  day. 

Ratio  of  prisoners  to  population.  The  ratio  of  prisoners  to  popula- 
tion includes  both  county  and  city  jails  so  far  as  they  are  known.  A 
small  number  of  city  jails  failed  to  report,  and  we  have  used  estimates 
in  thase  cases.  Our  figures  are  approximately  correct.  For  the  State 
as  a  whole,  local  jails  received  during  the  fiscal  year  ending  June  30, 
1915,  170,000  prisoners,  or  712  for  every  10,000  of  the  population. 
Taking  the  counties  by  groups  the  ratio  decreases  irregularly  as  the 


24  STATE   BOARD   OP    CHARITIES   AND    CORRECTIONS. 

density  of  population  decreases,  showing  that  petty  offenders  as  well 
as  more  serious  criminals  center  in  the  cities.  In  the  three  largest 
counties  the  ratio  is  918;  in  the  next  six  it  is  803;  in  counties  with 
population  between  25,000  and  50,000  it  is  394 ;  in  the  twenty  smallest 
counties  it  is  182. 

In  individual  counties,  however,  we  find  enormous  variations.  In 
San  Francisco  the  ratio  is  1103 ;  in  Alameda,  only  319.  Going  on  down 
through  counties  of  smaller  and  smaller  population,  we  find  in  San 
Bernardino,  1146 ;  in  Santa  Clara,  only  472 ;  in  Santa  Barbara,  665 ;  in 
Tulare,  only  141 ;  in  Yuba,  2056 ;  in  Nevada,  only  33 ;  in  Madera,  1464 ; 
in  Tuolumne,  only  18.  These  tremendous  differences  demand  more  of 
an  explanation  than  we  are  yet  able  to  give.  Leniency  of  some  officers 
and  severity  of  others  may  be  taken  for  granted.  Public  opinion  with 
reference  to  itinerant  casual  laborers  and  vagrants  undoubtedly  varies 
greatly.  The  fact  of  being  on  or  off  the  main  lines  of  travel  is  certainly 
a  factor.  Racial  and  industrial  considerations  must  also  receive  atten- 
tion. All  in  all,  we  are  just  learning  where  to  look  to  find  out  why 
170.000  persons  were  imprisoned  in  this  State  last  year. 

N.  B. — The  above  information  is  drawn  from  the  Statutes  of  1915,  California  Blue 
Book  for  1913-1915,  United  States  Census  for  1910,  and  reports  of  sheriffs,  city  mar- 
shals and  chiefs  of  police  for  the  fiscal  year  ending  June  30,  1915  ;  these  reports  being 
made  direct  to  the  office  of  the  State  Board  of  Charities  and  Corrections. 

Tables  Nos.  28-31  are  based  on  the  reports  of  sheriffs  sent  to  the  office 
of  the  State  Board  of  Charities  and  Corrections.  They  are  included  in 
this  bulletin  for  comparative  purposes.  These  correspond  to  the 
statistics  regularly  included  in  the  biennial  report  of  this  board. 

This  study  is  not  exhaustive  by  any  means,  but  it  suggests  a  few  of 
the  sources  of  crime.  Lack  of  vocational  guidance,  lack  of  industrial 
training  and  irregular  employment  are  most  apparent.  The  natural 
consequences  are  vagrancy,  vicious  associates,  addiction  to  alcohol  and 
drugs,  and  petty  thieving.  Doubtless  many  misdemeanants  are  cases  of 
feeble-mindedness  or  dementia  prsecox.  This  is  a  question,  however, 
which  our  present  study  has  merely  opened.  Future  investigations  in 
the  field  of  psychology  and  psychiatry  must  be  made  before  we  can  have 
exact  knowledge  of  the  sources  of  our  petty  offenders.  However,  we 
have  brought  together  facts  which  show  the  futility  of  present  methods 
of  handling  misdemeanants  and  which  point  the  way  to  a  better  system. 


A   STUDY   IN    COUNTY   JAILS. 


25 


TABLE  No.  1. 

Prisoners  Received  in  County  Jails  in  1914- 
GENERAL  CLASSIFICATION. 


Territory 

Charged  with  misdemeanors 

Charged  with 
Monies,  and 
U.  S.  prisoners. 

i! 
ft 

i 

H 

convicted 

Convicted 

Total 

Totals   

9,691 

956 
1,577 
582 
6,052 
425 
99 

969 
8,722 
3,311 
2,291 
2,126 
994 

11,017 

3,936 
2,708 
1,004 
1,897 
1,242 
230 

2,998 
8,019 
3,217 
2,294 
2,017 
491 

20,708 

4,892 
4,285 
1,586 
7,949 
1,667 
329 

3,967 
16,741 
6,528 
4,585 
4,143 
1,485 

8,459 

882 
3,014 
630 
2,627 
1,085 
221 

2,103 
6,356 
3,728 
1,463 
1,033 
132 

2,405 

380 
641 
204 
851 
177 
152 

190 
2,215 
640 
1,015 
407 
153 

81,572 

6,154 
7,940 
2,420 
11,427 
2,929 
702 

6,260 
25,312 
10,896 
7,063 
5,583 
1,770 

Bay  region 

Southern  California  

Coast        _                         _    _ 

San  Joaquin  Valley 

Sacramento  Valley  

Mountains           -    

Large    counties 

Total,  excluding  large  counties... 
Second  size  counties  

Third  size  counties 

Fourth   size  counties 

Fifth  size  counties  

STATE   BOARD   OF    CHARITIES   AND    CORRECTIONS. 


TABLE  No.  2. 

Prisoners  Received  in  County  Jails  in 
WOMEN. 


Counties 

Charged 
» 

Witnesses 

Insane 

Total 
female 

Male 

prisoners 

Grand  totals                         

900 

11 

143 

1,052 

29950 

Large  size  (over  100000) 

303 

1 

o 

304 

5388 

24 

o 

o 

24 

731 

Los  Angeles  (568  unknown) 

102 

o 

o 

102 

2488 

San   Francisco             _         _    

177 

1 

o 

178 

2,169 

Second  size  (50000  to  100000) 

326 

8 

33 

367 

10  529 

Fresno                _    

97 

3 

15 

115 

3,776 

Sacramento 

37 

0 

17 

54 

1,156 

San  Bernardino 

35 

3 

o 

38 

1  477 

San   Diego     _      _    _  

64 

2 

o 

66 

1,052 

San  Joaquin                         _                       _    

47 

0 

o 

47 

2,025 

Santa  Clara 

46 

0 

1 

47 

1043 

Third  size  (25,000  to  50,000)—    

191t 

2 

87 

283 

6,780 

Butte 

15 

1 

7 

23 

231 

Contra  Costa   _  

1 

0 

0 

1 

215 

Hiunboldt    

4 

o 

11 

15 

177 

Kern            _.  

95 

o 

10 

105 

1,687 

Marin 

0 

o 

4 

4 

249 

Orange 

19 

1 

7 

27 

1045 

Riverside    __    ___    .__ 

4 

o 

13 

17 

286 

San  Mateo 

4 

o 

0 

4 

476 

Santa  Barbara 

5 

o 

11 

16 

464 

Santa  Cruz  _      

6 

0 

6 

12 

314 

Solano    -    .         _  .            ______ 

8 

o 

0 

8 

583 

Sonoma 

23 

o 

14 

37 

525 

Tulare 

10 

o 

4 

14 

528 

Fourth  size  (10,000  to  25,000) 

69 

o 

U 

83 

5,500 

Imperial 

o 

o 

o 

0 

774 

Kings 

16 

o 

o 

16 

270 

Mendocino   __    ..    

4 

0 

2 

6 

239 

Merced    

5 

o 

1 

6 

580 

Monterey 

4 

o 

0 

4 

276 

Napa 

o 

o 

0 

o 

451 

Nevada  

2 

0 

1 

3 

58 

Placer  __ 

4 

o 

0 

4 

443 

San  Luis  Obispo1 

13 

o 

4 

17 

586 

Shasta 

1 

o 

3 

4 

138 

Siskiyou 

3 

o 

2 

5 

93 

Stanislaus 

9 

o 

o 

g 

1028 

Tehama    _. 

0 

o 

0 

0 

28 

Ventura  

7 

o 

o 

7 

252 

Yolo  _ 

o 

o 

o 

o 

117 

Yuba    _. 

1 

0 

1 

2 

167 

A   STUDY    IN    COUNTY    JAILS. 


TABLE  No.  2— Continued. 


Counties 

Charged 
with 
crime 

Witnesses 

Insane 

Total 
female 

Male 

prisoners 

Fifth  size  (less  than  10000) 

8 

o 

9 

17 

'  1,753 

1 

0 

2 

3 

50 

Colusa                     -    -  --  -  

6 

0 

0 

0 

34 

Del  Norte                              

2 

0 

1 

3 

32 

El  Dorado 

o 

o 

0 

0 

37 

Glenn                         

0 

0 

2 

2 

42 

Inyo                                       _    

Lake 

1 

o 

1 

2 

64 

Madera                      -                -    -  

0 

0 

0 

0 

1,221 

Mariposa 

Modoc     -  -  

0 

0 

1 

1 

48 

Plumas                                          -  -      -  -  -  - 

2 

0 

0 

2 

27 

San  Benito 

2 

o 

0 

2 

116 

Sierra    ___    _____      

<P 

0 

0 

0 

16 

Sutter     .               —                 

0 

0 

0 

0 

35 

Trinity 

0 

0 

2 

2 

8 

Tuolnmne 

o 

o 

0 

0 

23 

1Fisoal  year  1914-15. 


28 


STATE   BOARD   OP    CHARITIES   AND    CORRECTIONS. 


TABLE  No.  3. 

Prisoners  Received  in  County  Jails  in  1914- 
AGES. 


Counties 

•is? 

22-29 

30-39 

40-49 

50  and 
over 

Un- 
known 

Total 
known 

Grand  totals  _. 

Large  size  (over  100,000)  
Alameda 

3,487 

792 
166 

8,188 

1,664 
233 

6,973 

1,376 
189 

4,480 

888 
102 

3,615 

632 

59 

4,829 

908 
6 

26,743 

5,352 
749 

Los  Angeles  

508 

870 

550 

295 

158 

777 

2,381 

San  Francisco          

118 

561 

637 

491 

415 

125 

2,222 

Second  size  (50,000  to  100,000) 
Fresno    

1,346 

285 

3,140 
1,017 

2,529 
879 

1,453 
593 

1,085 
429 

1,343 

688 

9,553 
3,203 

Sacramento 

159 

251 

233 

149 

88 

330 

880 

San   Bernardino 

320 

607 

335 

143 

96 

14 

1,501 

San  Diego  „  

153 

365 

283 

167 

116 

34 

1,084 

San  Joaquin 

274 

669 

532 

286 

185 

126 

1,946 

Santa  Clara 

155 

231 

267 

115 

171 

151 

939 

Third  size  (25,000  to  50,000)._ 
Butte 

822 
33 

1,841 
60 

1,634 
37 

1,176 
42 

968 
29 

622 
53 

6,441 
201 

Contra  Costa      _    _ 

20 

57 

56 

34 

23 

26 

190 

Humboldt 

11 

48 

65 

19 

16 

33 

159 

Kern     

202 

562 

440 

297 

291 

0 

1,792 

Marin          .    

7 

37 

52 

68 

61 

28 

225 

Orange 

200 

334 

305 

141 

81 

11 

1061 

Riverside    

46 

104 

86 

33 

31 

3 

300 

San   Mateo   

47 

120 

125 

93 

87 

8 

472 

Santa  Barbara 

56 

107 

107 

61 

40 

109 

371 

Santa  Cruz  
Solano    

38 
39 

67 
136 

69 

42 

85 
95 

51 
65 

16 
214 

310 

377 

Sonoma   

60 

99 

146 

124 

131 

2 

560 

Tulare    _ 

63 

110 

104 

84 

62 

119 

423 

Fourth  size  (10,000  to  25,000) 
Imperial    

485 
49 

1,414 
328 

1,292 
175 

885 
121 

843 
58 

664 
43 

4,919 
731 

Kings1    

286 

0 

Mendocino 

22 

52 

71 

41 

38 

21 

224 

Merced 

35 

190 

159 

92 

80 

30 

556 

Monterey   _ 

61 

71 

66 

31 

47 

4 

276 

Napa    

15 

54 

95 

108 

163 

16 

435 

Nevada    _ 

10 

10 

16 

10 

13 

2 

59 

Placer    _. 

48 

104 

120 

79 

79 

17 

430 

San  Luis  Obispo2  _ 

79 

151 

125 

80 

56 

112 

491 

Shasta   

9 

39 

35 

18 

18 

23 

119 

Siskiyou 

10 

37 

15 

g 

g 

20 

78 

Stanislaus 

78 

192 

272 

214 

216 

65 

972 

Teh  am  a 

1 

2 

10 

10 

5 

o 

28 

Ventura 

51 

109 

53 

23 

11 

12 

247 

Tolo 

5 

24 

36 

24 

20 

g 

109 

Tuba   .. 

12 

SI 

44 

2fi 

31 

K 

164 

A   STUDY   IN    COUNTY   JAILS. 


29 


TABLE  No.  3 — Continued. 


Counties 

21  and 
under 

22-29 

30-39 

40-49 

50  and 
over 

Un- 
known 

Total 
known 

Fifth  size  (less  than  10,000). 
Alpine 

w 

129 

1# 

78 

87 

1,292 

478 

Amador             

3 

11 

22 

1 

14 

2 

51 

Calaveras 

Oolusa 

3 

10 

7 

3 

5 

6 

28 

Del  Norte    

6 

5 

7 

1 

1 

15 

20 

El  Dorado 

5 

7 

5 

4 

2 

14 

23 

Glenn 

2 

13 

8 

6 

6 

9 

35 

Lake 

Lassen 

2 

15 

18 

15 

9 

7 

59 

Madera3 

1221 

0 

Mariposa 

Modoc 

5 

14 

11 

12 

5 

2 

47 

Mono  

Plumas  _       _  _ 

6 

10 

4 

1 

4 

4 

25 

San  Benito 

7 

20 

39 

22 

28 

2 

116 

Sierra   

0 

4 

4 

2 

2 

4 

12 

Sutter  

1 

9 

11 

6 

6 

2 

33 

Trinity 

0 

1 

2 

1 

2 

4 

6 

Tuolumne 

2 

10 

4 

4 

3 

o 

23 

1Ornitted  through  error. 
3Fiscal  year  1914-1915. 
"Data  not  recorded. 


30 


STATE   BOARD   OF    CHARITIES   AND    CORRECTIONS. 


TABLE  No.  4. 

Prisoners  Received  in  County  Jails  in  191-'f. 
PLACE  OP  BIRTH. 


Counties 

Same 
county 

Cali- 
fornia 
(other 
counties) 

United 
States 
(other 
states) 

Other 
coun- 
tries 

Cn- 

Total 

Grand  totals 

280 

4,971 

12,395 

9,142 

4,784 

26,788 

Large  size  (over  100000) 

55 

1,106 

2,470 

1,688 

941 

5,319 

Alameda 

55 

165 

296 

233 

6 

749 

313 

1,295 

743 

807 

2351 

San  Francisco                     _ 

628 

879 

712 

128 

2,219 

Second  size  (50,000  to  100,000) 

53 

1,802 

4,269 

3,776 

996 

9,900 

Fresno 

0 

733 

1,396 

1,227 

535 

3,356 

Sacramento     

18 

186 

401 

317 

288 

922 

San  Bernardino        _      _    

0 

196 

717 

602 

0 

1,515 

San  Diego 

3 

110 

515 

471 

19 

1,099 

San  Joaquin 

0 

358 

840 

862 

12 

2,060 

Santa  Clara 

32 

219 

400 

297 

142 

948 

Third  size  (25,000  to  50,000)  

100 

904 

2,857 

1,974 

1,138 

5,925 

Butte         _    ._      _    -_      _    __    __ 

2 

44 

119 

41 

48 

206 

Contra   Costa 

0 

37 

82 

78 

19 

197 

Humboldt 

6 

42 

50 

73 

21 

171 

Kern 

15 

218 

961 

592 

6 

1  786 

Marin   

1 

75 

86 

91 

0 

253 

Orange    .    

8 

76 

498 

253 

237 

835 

Riverside 

4 

29 

130 

137 

3 

300 

San  Mateo1 

480 

Santa  Barbara 

32 

43 

140 

140 

125 

355 

Santa  Cruz     

20 

44 

157 

90 

15 

311 

Solano     _    -_             _    __    __ 

12 

95 

221 

161 

102 

489 

Sonoma 

0 

181 

196 

177 

8 

554 

Tulare 

0 

110 

217 

•141 

74 

468 

Fourth  size  (10,000  to  25,000)  

42 

938 

2,603 

1,575 

425 

5,158 

Imperial  ._    __ 

0 

68 

431 

230 

45 

729 

Kings    —  _    ..      . 

0 

46 

100 

127 

13 

27a 

Mendocino 

0 

78 

74 

74 

19 

226 

Merced 

2 

83 

337 

143 

21 

565 

Monterey 

0 

75 

138 

61 

6 

274 

Napa 

14 

98 

124 

114 

101 

350 

Nevada 

5 

15 

20 

21 

o 

61 

Placer    __._    ._ 

2 

75 

187 

172 

11 

436 

San  Luis   Obispo3 

8 

74 

231 

164 

126 

477 

Shasta  ....    ..    __ 

4 

34 

72 

32 

0 

142 

Siskiyou 

0 

22 

45 

24 

7 

91 

Stanislaus 

o 

169 

611 

190 

67 

970 

Tehama 

o 

6 

13 

5 

4 

24 

Ventura 

3 

34 

101 

120 

1 

2.rkS 

Yolo 

1 

33 

44 

35 

4 

113 

Yuba  .. 

3 

28 

75 

63 

0 

169 

A   STUDY    IN    COUNTY    JAILS. 


TABLE  No.  4 — Continued. 


Counties 

Same 
county 

Cali- 
fornia 
(other 
counties) 

United 
States 
(other 
states) 

Other 

coun- 
tries 

Un- 
known 

Total 
known 

Fifth  size  (less  than  10,000) 

30 

131 

196 

129 

l,28Jf 

486 

Alpine 

Amador 

0 

20 

11 

21 

1 

52 

Calaveras 

Colusa     -_      

1 

6 

16 

7 

4 

30 

Del  Norte        _           ._    -_      ._    __ 

6 

8 

5 

4 

12 

23 

El  Dorado 

4 

5 

6 

2 

20 

17 

Glenn 

1 

6 

19 

9 

9 

35 

Inyo 

Lake1 

Lassen  _            _  _      

0 

17 

24 

17 

8 

58 

Madera1            _    __      _      _    

1,221 

Mariposa 

Modoc 

4 

18 

26 

1 

0 

49 

Mono 

Plumas 

0 

8 

10 

8 

3 

26 

San  Benito  .     _      _  _  _ 

12 

27 

46 

33 

0 

118 

Sierra  .      ._      ._ 

0 

3 

10 

3 

0 

16 

Sutter 

0 

7 

15 

11 

2 

33 

Trinity 

0 

3 

2 

1 

4 

6 

Tuoluinne 

2 

3 

6 

12 

0 

23 

!Data  not  recorded. 
2Fiscal  year  1914-1915. 


32 


STATE   BOARD   OF   CHARITIES   AND    CORRECTIONS. 


TABLE  No.  5. 

Prisoners  Received  in  County  Jails  in  1914. 
LENGTH  OF  TIME  IN  COUNTY  BEFOBE  ABBEST. 


Counties 

Iweek 
or  less 

1  week 
to  1 
month 

1  to  6 

months 

6mos. 
to  1 
year 

1  to  5 
years 

Over 
5  years 

Un- 
known 

Total 
known 

Grand  totals  — 

Large     size      (over 
100000) 

6,835 

209 

2,209 

284 

2,670 
469 

1,705 

328 

3,742 
1,117 

6,644 

2,388 

7,767 
1,465 

23,805 
4,795 

Alameda  

50 

48 

45 

32 

98 

273 

209 

546 

Los  Angeles  

51 

91 

196 

174 

649 

890 

1,107 

2,051 

San  Francisco  

Second    size     (50,000 
to  100,000)     

108 
2,866 

145 

874 

228 
913 

122 
753 

370 
1,177 

1,225 
1,745 

149 

2,568 

2,198 
8,328 

Fresno 

562 

169 

207 

418 

416 

787 

1,332 

2,559 

Sacramento 

250 

97 

105 

37 

129 

155 

437 

773 

San    Bernardino-. 
San  Diego 

633 
244 

135 

143 

168 
132 

105 
91 

185 
279 

217 
151 

72 

78 

1,443 
1,040 

San  Joaquin 

1,012 

263 

223 

58 

85 

268 

163 

1,909 

Santa  Clara 

165 

67 

78 

44 

83 

167 

486 

604 

Third  size  (25,000  to 
to  50000) 

1,833 

543 

674 

367 

765 

1,650 

1,231 

5,832 

Butte   

67 

29 

34 

9 

15 

41 

59 

195 

Contra  Costa  
Humboldt 

65 
9 

20 
11 

28 
18 

15 
10 

35 
26 

27 
70 

26 

48 

190 
144 

Kern 

569 

132 

187 

93 

281 

496 

34 

1,758 

Marin  

85 

10 

17 

7 

8 

75 

51 

202 

Orange    

268 

120 

110 

98 

136 

275 

65 

1,007 

Riverside 

109 

25 

41 

15 

43 

46 

24 

279 

San  Mateo* 

480 

Santa  Barbara  ... 
Santa  Cruz 

140 
139 

33 

41 

39 
30 

13 

10 

41 
13 

79 

56 

135 
37 

345 
289 

Solano 

217 

42 

59 

31 

33 

76 

133 

458 

Sonoma 

79 

51 

58 

37 

60 

248 

29 

533 

Tulare  

86 

29 

53 

29 

74 

161 

110 

432 

Fourth    size     (10,000 
to  25,000) 

1,816 

461 

539 

230 

617 

753 

1,167 

4,416 

Imperial 

72 

38 

54 

36 

149 

81 

344 

430 

Kings 

82 

31 

35 

23 

24 

60 

31 

255 

Mendocino1 

245 

Merced    _. 

373 

15 

43 

13 

29 

60 

53 

533 

Monterey 

147 

45 

26 

7 

21 

33 

1 

279 

Napa 

132 

22 

43 

22 

103 

100 

29 

422 

Nevada   

13 

6 

13 

5 

7 

9 

8 

53 

Placer   

175 

49 

38 

18 

50 

98 

19 

428 

San  Luis  Obispo3. 
Shasta 

286 
37 

40 
20 

.53 
16 

11 
2 

15 
g 

42 
26 

156 
33 

447 
109 

Siskiyou 

28 

12 

15 

o 

9 

18 

16 

82 

Stanislaus    

307 

130 

148 

63 

127 

136 

126 

911 

Tehama    

1 

0 

5 

2 

1 

4 

15 

13 

Ventura   __ 

95 

32 

27 

16 

45 

43 

1 

258 

Yolo    . 

34 

4 

9 

4 

12 

9 

45 

72 

Tuba    . 

34 

17 

14 

8 

17 

34 

45 

124 

A  STUDY   IN   COUNTY   JAILS. 


TABLE  No.  5 — Continued. 


Counties 

1  week 
or  less 

1  week 
to  1 
month 

Ito6 
months 

6  mos. 

tot 

year 

Ito5 
years 

Over 

5  years 

Un- 
known 

Total 
known 

Fifth  size  (less  than 
10,000) 

111 

47 

75 

27 

66 

108 

1,336 

434 

Alpine 

Amador            _    _  _ 

5 

4 

3 

3 

10 

19 

9 

44 

Calaveras 

Colusa 

3 

6 

3 

1 

5 

6 

10 

24 

Del  Norte 

5 

0 

1 

1 

3 

3 

22 

13 

El  Dorado  

10 

0 

4 

2 

1 

1 

19 

18 

Glenn          

22 

0 

4 

2 

3 

8 

5 

39 

Invo 

Lake1 

Lassen 

1 

3 

22 

8 

10 

3 

19 

47 

Madera1   __    

1,221 

Mariposa 

Modoc 

4 

4 

g 

1 

5 

26 

0 

49 

Mono 

Plumas    

2 

3 

6 

1 

3 

9 

5 

24 

San  Benito 

46 

21 

14 

3 

9 

23 

2 

116 

Sierra 

4 

0 

0 

1 

4 

4 

3 

13 

Sutter 

6 

4 

4 

1 

5 

5 

10 

25 

Trinity1 

10 

Tuolumne    . 

3 

2 

5 

3 

8 

1 

1 

22 

'Not  recorded. 
"Fiscal   year  1914-1915. 


3—23457 


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STATE   BOARD   OP    CHAEITIES   AND    CORRECTIONS. 


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A   STUDY   IN    COUNTY   JAILS. 


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STATE   BOARD   OF   CHARITIES   AND    CORRECTIONS. 


TABLE  No.  8. 

Prisoners  Received  in  County  Jails  in  1914- 
LENGTH  OF  TIME  IN  STATE  BEFORE  ARREST. 


Counties 

3oS 

3to6 
months 

6mos. 
to  1  yr. 

1  to  5 

years 

Over 
5yrs. 

known 

Total 
known 

Grand  totals 

2,489 

853 

1,810 

5,211 

13,^71 

7,738 

23,83  >t 

Large  size  (over  100,000)  
Alameda                       

344 
47 

144 

21 

254 
30 

1,103 
114 

3,206 
529 

1,209 
14 

5,051 
741 

Los  Angeles 

119 

62 

134 

642 

1,155 

1,046 

2,112 

San  Francisco 

178 

61 

90 

347 

1,522 

149 

2,198 

Second  size  (50,000  to  100,000) 
Fresno                        -      -    

1,101 
166 

279 
51 

902 
501 

2,053 
603 

4,295 
1,526 

2,266 
1,044 

8,630 
2,847 

Sacramento 

67 

23 

62 

190 

491 

377 

833 

San  Bernardino 

471 

66 

119 

313 

516 

30 

1,485 

San  Diego     

137 

38 

69 

353 

450 

71 

1,047 

San   Joaquin       

218 

78 

121 

474 

862 

319 

1,753 

Santa  Clara 

42 

23 

30 

120 

450 

428 

665 

Third  size  (25,000  to  50,000).. 
Butte  

507 
34 

Wit 
8 

385 

1 

1,152 
27 

3,471 
121 

1,344 

57 

5,719 
197 

Contra  Costa 

19 

11 

16 

38 

85 

47 

169 

Hurnboldt       _ 

1 

3 

5 

21 

121 

41 

151 

Kern 

231 

50 

104 

374 

1,033 

0 

1,792 

Marin 

9 

5 

3 

17 

190 

29 

224 

Orange 

21 

39 

127 

259 

496 

130 

942 

Riverside       ._    __ 

37 

15 

14 

88 

130 

19 

284 

San  Mateo1 

480 

Santa  Barbara 

23 

17 

27 

59 

212 

142 

338 

Santa  Cruz 

30 

6 

17 

59 

184 

30 

296 

Solano    

64 

29 

32 

76 

162 

228 

363 

Sonoma    _    . 

19 

15 

15 

57 

431 

25 

537 

Tulare  

19 

6 

18 

77 

306 

116 

426 

Fourth  size  (10,000  to  25,000). 
Imperial 

517 

48 

211 
46 

245 
35 

818 
158 

2,222 
26 

1,570 
461 

4,013 
313 

Kings  ..1  

16 

2 

4 

34 

175 

55 

231 

Mendocino  

245 

0 

Merced    

58 

41 

19 

70 

310 

88 

498 

Monterey 

39 

10 

17 

46 

167 

1 

279 

Napa 

9 

2 

2 

59 

112 

267 

184 

Nevada 

9 

2 

2 

6 

28 

14 

47 

Placer 

52 

21 

30 

68 

238 

38 

409 

San  Luis  Obispo2  

90 

21 

34 

84 

189 

185 

418 

Shasta   __     _ 

21 

9 

4 

11 

61 

36 

106 

Siskiyou    ._ 

25 

1 

4 

9 

47 

12 

86 

Stanislaus 

78 

33 

63 

169 

599 

95 

942 

Tehama 

2 

o 

1 

2 

4 

19 

9 

Ventura 

36 

17 

18 

63 

123 

2 

257 

Yolo  ._.. 

8 

1 

1 

17 

38 

52 

65 

Yuba    .. 

26 

5 

11 

22 

105 

0 

169 

A   STUDY    IN    COUNTY    JAILS. 


37 


TABLE  No.  8— Continued. 


Counties 

3mos. 
or  less 

3to6 
months 

6mos. 
to  lyr. 

1  to  5 
years 

Over 
5yrs. 

Un- 
known 

Total 
known 

Fifth  size  (less  than  10,000). 
Alpine 

20 

15 

24 

85 

277 

1,3W 

w 

Amador 

1 

o 

4 

11 

28 

g 

44 

Calaveras 

Colusa       -_      -      _  . 

2 

5 

1 

2 

16 

8 

26 

Del  Norte 

1 

0 

1 

2 

8 

23 

12 

El  Dorado1 

37 

Glenn 

2 

4 

4 

8 

23 

3 

41 

Lake1      ._      .-    - 

Lassen         _ 

1 

1 

5 

15 

29 

15 

51 

Madera1 

1,221 

Mariposa1 

Modoc 

1 

3 

2 

6 

36 

1 

48 

Plumas        _      _      _    

1 

1 

3 

8 

9 

7 

22 

San  Benito 

6 

0 

0 

17 

85 

10 

108 

Sierra 

1 

0 

0 

3 

9 

3 

13 

Sutter 

4 

1 

1 

6 

21 

2 

33 

Trinity1 

10 

Tuolumne        _       _    

0 

0 

3 

7 

13 

0 

5*3 

JNot  recorded. 
"Fiscal  year  1914-1915. 


38 


STATE   BOARD   OF    CHARITIES   AND    CORRECTIONS. 


TABLE  No.  9. 

Prisoners  Received  in  County  Jails  in  1914- 
LENGTH  OF  TIME  IN  STATE  BEFORE  ARREST. 


Prison 

>rs  who  ha<: 

been  In  C 

Ulf  ornla  be 

fore  their  i 

rrest 

Territory 

3  mos. 
or  less 

OverS 
mos. 
and  up 
to6 
mos. 

Over  6 

mos. 
and  up 
to  1  yr. 

Overl 

yr.  and 
up  to 
5  yrs. 

Over 

5  yrs. 

Total 
over  1 
year 

Total 
known 

Time  In 
State 

known 

Totals 

2,489 

853 

1,810 

5,211 

13411 

18,682 

23,834 

7,738 

Bay  region  

323 

138 

186 

752 

3,319 

4,071 

4,718 

1,436 

Southern  California 

833 

266 

498 

1,813 

2,773 

4,586 

6,183 

1,757 

Coast  counties  

220 

74 

119 

334 

1,004 

1,338 

1,751 

669 

San  Joaquin  Valley 

786 

261 

830 

1,801 

4,811 

6,612 

8,489 

2,938 

Sacramento    Valley. 

261 

97 

150 

418 

1,219 

1,637 

2,145 

784 

Mountains 

66 

17 

27 

93 

345 

438 

548 

154 

Large  counties  

344 

144 

254 

1,103 

3,206 

4,309 

5,051 

1,209 

Total,  excluding 

large  counties- 

2,145 

709 

1,556 

4,108 

10,265 

14,373 

18,783 

6,529 

Second  size  counties 

1,101 

279 

902 

2,053 

4,295 

6,348 

8,630 

2,266 

Third  size  counties- 

507 

204 

385 

1,152 

3,471 

4,623 

5,719 

1,344 

Fourth  size  counties 

517 

211 

245 

818 

2,222 

3,040 

4,013 

1,570 

Fifth  size  counties.- 

20 

15 

24 

85 

277 

362 

421 

1,349 

A    STl'DY    IN    COUNTY    JAILS. 


TABLE  No.  10. 

Prisoners  Received  in  County  Jails  in  1914. 

LENGTH  OF  TIME  IN  STATE  BEFORE  ARREST. 

(Percentage  table.) 


Territory 

Percentage  of  prisoners  who  had  been  In  California  before  arrest 

3  mos. 
or  less 

OrerS 

mos. 
and  up 
to  6 
mos. 

Orer 

to  1  yr. 

Over 
Iff. 

and  up 
to  5yrs. 

Orer 

5yrs. 

Total 
over 
lyr. 

Totals                    -    -    -- 

194 

6.8 
13.5 
12.5 
9.2 
12.2 
12.0 

6.8 

114 

12.7 
8.8 
12.9 
4.7 

5.6 
2.9 
4.3 
4.2 
3.1 
4.5 
3.1 

2.9 

3.8 
3.2 
3.6 
5.2 
3.6 

7.6 
4.0 

8.0 
6.8 
9.8 
7.0 
5.0 

5.0 

8.S 
10.5 
6.7 
6.1 
5.7 

21.9 
16.0 
29.3 
19.1 
21.2 
19.5 
17.0 

21.8 

21.8 
23.8 
20.2 
20.4 
20.2 

56.5 
70.3 
44.9 
57.4 
56.7 
56.8 
62.9 

63.5 

54.7 
49.8 
60.7 
55.4 
65.8 

784 
86.3 
74.2 
76.5 
77.9 
76.3 
79.9 

853 

76.5 
73.6 
80.9 
75.8 
«6.0 

Bay  region 

Southern  California 

Coast  counties  -         - 

San  Joaquin  Valley  _        .____._. 

Sacramento  Valley 

Mountains 

Large  counties 

Total,  excluding  large  counties 
Second  size  counties  _         

Third  size  counties 

Fourth  size  counties 

Fifth  size  counties 

40 


STATE   BOARD   OF    CHARITIES   AND    CORRECTIONS. 


TABLE  No.  11. 

Foreign-born  Prisoners  Received  in  County  Jails  in  1914- 
LENGTH  OF  TIME  IN  UNITED  STATES. 


Counties 

1  year 
or  less 

1  to  5 
years 

5  to  10 

years 

All 
others 

Total 
foreign 

Grand  totals        -      -    

487 

1,674 

1,440 

5,541 

9,142 

Large  size  (over  100000) 

70 

312 

350 

956 

1,688 

9 

38 

63 

123 

233 

Los  Angeles     _              .  - 

22 

156 

168 

397 

743 

San  Francisco 

39 

118 

119 

436 

712 

Second  size  (50000  to  100000) 

237 

666 

546 

2,327 

3,776 

Fresno    _       -    -  

36 

129 

126 

936 

1,227 

Sacramento1 

317 

317 

San  Bernardino 

64 

194 

129 

215 

602 

San  Diego 

77 

95 

98 

201 

471 

San  Joaquin    _       

54 

217 

153 

438 

862 

•   Santa  Clara    _  _  ..  _.    .  

6 

31 

40 

220 

297 

Third  size  (25000  to  50,000) 

109 

410 

323 

1  132 

1,974 

Butte  

3 

6 

6 

26 

41 

Contra  Costa  

11 

22 

16 

29 

78 

Humboldt  _         

0 

7 

22 

44 

73 

Kern 

26 

83 

111 

372 

592 

Marin 

2 

7 

14 

68 

91 

Orange  .  

17 

128 

108 

253 

Riverside    „_ 

7 

46 

31 

53 

137 

San  Mateo1 

Santa  Barbara 

9 

24 

19 

88 

140 

Santa  Cruz  .      _       

11 

12 

20 

47 

90 

Solano    

7 

27 

25 

102 

161 

Sonoma     

11 

27 

19 

120 

177 

Tulare    - 

5 

21 

40 

75 

141 

Fourth  size  (10,000  to  25,000)  .    _      . 

66 

252 

207 

1,050 

1,575 

Imperial    

14 

27 

12 

177 

230 

Kings  

5 

23 

22 

77 

127 

Mendocino1 

74 

74 

Merced 

3 

8 

17 

115 

143 

Monterey 

3 

10 

13 

35 

61 

Napa    _•__  

4 

5 

8 

97 

114 

Nevada  

1 

3 

3 

14 

21 

Placer  

16 

30 

40 

86 

172 

San  Luis  Obispo 

10 

45 

15 

94 

164 

Shasta    _ 

o 

7 

4 

21 

32 

Siskiyou 

o 

5 

7 

12 

24 

Stanislaus 

5 

31 

28 

126 

190 

Tehama 

o 

o 

o 

5 

5 

Ventura 

3 

37 

21 

59 

120 

Tolo 

1 

7 

5 

22 

35 

Tuba    .. 

1 

14 

12 

36 

63 

A   STUDY    IN    COUNTY    JAILS. 


41 


TABLE  No.  11— Continued. 


Counties 

1  year 
or  less 

1  to  5 
years 

5  to  10 
years 

All 
others 

Total 
foreign 

Fifth   size   (under  10,000)  

5 

Sit 

U 

76 

129 

Alpine2           -            _-  -_         ---      _  _    

Amador                      _         _    

1 

5 

4 

11 

21 

Calaveras2 

7 

7 

Del  Norte     

0 

1 

0 

3 

4 

El   Dorado1        .                    ...  

2 

2 

Glenn                      -                     

1 

5 

3 

0 

9 

Lake1 

Lassen      _  -    

0 

5 

12 

17 

Madera1                        _                

Mariposa1                                           

Modoc 

0 

0 

0 

1 

1 

o 

4 

4 

8 

San  Benito    .         _  _    

0 

2 

2 

29 

33 

Sierra                                                 _      -    

0 

0 

2 

3 

gutter 

1 

7 

3 

0 

11 

1 

1 

Tuolumne        -    - 

1 

5 

2 

4 

12 

lNot  recorded. 
3Not  studied. 


f  I 


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A   STUDY    IN    COUNTY    JAILS. 


43 


TABLE  No.  13. 

Prisoners  Received  in  County  Jails  in  1914- 
SPECIAL  RACIAL  AND  NATIONAL  GROUPS. 


Counties 

Mexican 

Indian 

Negro 

Chinese 

Jap- 
anese 

Hindu 

Miscel- 
laneous 

Total 

Grand    totals  

Large     size     (over 
100,000)       _-    

3,078 

224 

202 
17 

1,021 
256 

703 

124 

168 

28 

76 

56 
27 

5,307 
682 

Alameda 

15 

8 

24 

24 

4 

0 

75 

Los  Angeles 

140 

5 

157 

26 

19 

5 

8 

360 

San  Francisco  

Second  size  (50,000  to 
100,000)                -    - 

69 
1,550 

4 
69 

75 
420 

74 
355 

5 
96 

1 

52 

19 
20 

247 
2,562 

Fresno 

389 

3 

124 

45 

17 

41 

5 

624 

Sacramento 

49 

0 

44 

30 

15 

3 

5 

146 

San  Bernardino  „ 
San  Diego        _    .  _ 

468 
255 

.    56 

8 

81 
61 

6 

84 

7 
13 

1 

0 

0 
1 

619 
422 

San  Joaquin 

371 

2 

91 

122 

37 

7 

6 

636 

Santa  Clara 

18 

0 

19 

68 

7 

0 

3 

115 

Third  size  (25,000  to 
50,000)      .    

854 

50 

142 

125 

32 

1 

8 

1,212 

Butte     _  _      _    __ 

2 

1 

9 

1 

3 

0 

0 

16 

Contra  Costa  
Humboldt 

0 
2 

1 
5 

3 
1 

0 
0 

0 
0 

0 

o 

0 

o 

4 

8 

Kern 

192 

5 

80 

97 

9 

1 

o 

384 

Marin     _  _      _    __. 

3 

1 

0 

1 

0 

0 

0 

5 

Orange 

411 

0 

10 

5 

3 

0 

0 

429 

Riverside 

117 

6 

7 

1 

2 

0 

0 

133 

San  Mateo1 

Santa  Barbara  __. 
Santa   Cruz   
Solano 

46 
9 
5 

2 
0 
5 

5 
4 
9 

1 

2 

7 

2 
0 
0 

0 

0 

o 

0 
0 
1 

56 

15 

27 

Sonoma    

5 

16 

8 

0 

1 

0 

7 

37 

Tulare   _.    „ 

62 

8 

6 

10 

12 

0 

0 

98 

Fourth    size     (10,000 
to   25,000) 

419 

38 

198 

94 

12 

15 

2 

778 

Imperial 

169 

2 

94 

10 

3 

7 

0 

285 

Kings 

72 

o 

9 

26 

1 

o 

1 

109 

Mendocino    __ 

1 

13 

1 

0 

0 

0 

0 

15 

Merced 

0 

2 

15 

3 

0 

0 

0 

20 

Monterey 

3 

0 

5 

1 

1 

2 

0 

12 

Napa 

o 

0 

8 

1 

0 

0 

0 

9 

Nevada 

o 

0 

2 

0 

0 

0 

0 

2 

Placer 

5 

3 

9 

17 

4 

g 

0 

44 

San  Luis  Obispo3. 
Shasta     _  _ 

18 
5 

0 
9 

6 
4 

7 
0 

1 
0 

0 
0 

o 

0 

32 

18 

Siskiyou      __.    __ 

0 

3 

1 

1 

0 

o 

10 

Stanislaus 

26 

3 

20 

5 

0 

0 

o 

54 

Teh  am  a 

1 

0 

1 

1 

0 

0 

o 

3 

Ventura 

106 

0 

7 

0 

0 

0 

0 

113 

Yolo 

0 

0 

5 

4 

1 

0 

0 

10 

Yuba  .. 

13 

1 

9 

18 

0 

0 

1 

42 

44 


STATE   BOARD   OF    CHARITIES   AND    CORRECTIONS. 


TABLE  No.  13 — Continued. 


Counties 

Mexican 

Indian 

Negro 

Chinese 

Jap- 
anese 

Hindu 

Miscel- 
laneous 

Total 

Fifth  size  (less  than 
10,000)    .  .    - 

31 

28 

5 

5 

0 

2 

2 

73 

Alpine 

Amador 

o 

2 

0 

1 

0 

o 

0 

g 

Calaveras1 

Colusa 

1 

0 

2 

1 

o 

o 

o 

4 

Del  Norte 

0 

0 

0 

o 

o 

o 

o 

o 

El  Dorado 

1 

1 

0 

o 

o 

o 

1 

3 

Glenn   

1 

0 

0 

2 

0 

o 

o 

3 

Inyo    .  - 

Lake1        .      _    -. 

Lassen 

3 

3 

1 

0 

o 

o 

o 

7 

Madera1 

Mariposa1 

Modoc 

0 

18 

0 

0 

o 

o 

o 

18 

Mono    _    _ 

Plumas     __. 

5 

4 

0 

1 

o 

o 

1 

11 

San  Benito  

10 

0 

2 

0 

o 

o 

o 

12 

Sierra    .. 

0 

0 

0 

o 

o 

o 

o 

o 

Sutter   „      . 

1 

0 

0 

o 

o 

2 

o 

3 

Trinity 

0 

0 

0 

o 

o 

o 

o 

o 

Tuolumne 

9 

0 

0 

o 

o 

o 

o 

9 

»Xot  recorded. 
3Fiscal  year  1914-1915. 


A   STUDY   IN    COUNTY   JAILS. 


45 


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STATE   BOARD   OF  .CHARITIES   AND    CORRECTIONS. 


TABLE  No.  15. 
Prisoners  Received  in  County  Jails  in  1914. 
OCCUPATIONS. 

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STATE   BOARD   OF -CHARITIES   AND    CORRECTIONS. 


TABLE  No.  16. 

Prisoners  Discharged  from  County  Jails  in  1914. 
PRISONERS  NOT  CHARGED  WITH  CRIME. 


Counties 

Wit- 

Inebri- 
ates and 
insane 

Suspects 

Lodgers 

niles 

Total 
not 
charged 
with 
crime 

Grand  totals                      -  -      

156 

731 

741 

517 

260 

2405 

Large  size  (over  100000) 

5 

106 

79 

190 

Alameda 

29 

12 

41 

Los  Angeles  

4 

77 

67 

148 

San  Francisco  _         

1 

1 

Second  size  (50,000  to  100,000) 

8-4 

184 

258 

5 

109 

640 

Fresno 

9 

96 

6 

o 

24 

135 

Sacramento1    __       __       

San  Bernardino  _         _.      

8 

8 

153 

24 

193 

San  Diego         

4 

0 

3 

0 

43 

50 

San  Joaquin 

55 

o 

79 

o 

10 

144 

Santa  Clara 

8 

80 

17 

5 

8 

118 

Third  size  (25,000  to  50,000)  
Butte   ._ 

33 
2 

336 
31 

155 
0 

447 

o 

44 

7 

1,015 

40 

Contra  Costa 

o 

o 

o 

o 

0 

0 

Humboldt    _-        

•    2 

19 

o 

o 

o 

21 

Kern    

1 

51 

110 

225 

o 

387 

Marin 

4 

31 

35 

Orange 

20 

58 

16 

63 

157 

Riverside  

0 

45 

14 

o 

1 

60 

San  Mateo  

0 

o 

o 

84 

o 

84 

Santa  Barbara 

o 

27 

o 

o 

3 

30 

Santa  Cruz 

1 

19 

o 

o 

7 

27 

Solano 

7 

14 

o 

44 

g 

71 

Sonoma 

o 

64 

15 

o 

20 

99 

Tulare  _    

4 

4 

Fourth  size  (10,000  to  25,000)  

27 

145 

158 

61 

16 

407 

Imperial 

g 

7 

18 

0 

0 

33 

Kings   _. 

5 

7 

57 

0 

0 

69 

Mendocino 

o 

17 

g 

g 

4 

35 

Merced  _ 

1 

8 

o 

2 

5 

16 

Monterey  

o 

g 

2 

0 

5 

13 

Napa1  

Nevada    

o 

14 

o 

0 

0 

14 

Placer   

5 

g 

0 

0 

13 

San  Luis  Obispo2— 

o 

10 

o 

0 

0 

10 

Shasta     . 

o 

28 

0 

0 

00 

Siskiyou  . 

o 

15 

o 

0 

0 

15 

Stanislaus    

o 

4 

55 

^ 

2 

62 

Tehama  

2 

1 

1 

0 

0 

4 

Ventura    

g 

o 

5 

53 

0 

64 

Tolo    

o 

12 

0 

0 

0 

12 

Tuba  .. 

0 

8 

fi 

0 

n 

14 

A   STUDY    IN    COUNTY    JAILS. 


55 


TABLE  No.  16 — Continued. 


Counties 

Wit- 
nesses 

Inebri- 
ates and 
insane 

Suspects 

Lodgers 

Juve- 
niles 

Total 

C»d 
crime 

Fifth  size  (less  than  10,000)  

7 

66 

64 

J 

12 

153 

Alpine            _    . 

Amador 

0 

17 

1 

o 

o 

18 

Calaveras1 

Colusa  

0 

7 

0 

o 

o 

7 

Del  Norte    

0 

2 

2 

o 

o 

4 

El  Dorado 

0 

0 

o 

o 

4 

Glenn 

0 

4 

2 

o 

o 

6 

Inyo    — 

Lake1     .    ._.      ..    

Lassen        _                 _  _      

4 

12 

2 

6 

o 

18 

Madera 

3 

12 

10 

o 

9 

34 

Mariposa1 

Modoe 

0 

3 

1 

o 

o 

4 

Mono      _       _-  _  _ 

Plumas     -                            -  _    

0 

2 

0 

0 

2 

4 

San  Benito 

o 

0 

41 

0 

1 

42 

Sierra 

o 

0 

0 

0 

0 

0 

Sutter      _         

0 

1 

5 

4 

0 

10 

Trinity        

0 

2 

0 

0 

0 

2 

Tuolumne 

0 

0 

0 

0 

0 

0 

JNot  recorded. 
3Fiscal  year  1914-1915. 


STATE   BOARD   OF    CHARITIES   AND    CORRECTIONS. 


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STATE   BOARD   OF    CHARITIES   AND    CORRECTIONS. 


Total  Im- 
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TABLE  No.  23. 
DiscJiargcd  from  County  Jails  in  1914- 
SONERS  CHARGED  WITH  DISTURKING  T 


P 
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102  STATE   BOARD   OF    CHARITIES   AND    CORRECTIONS. 

MODERN  INSTITUTIONS  FOR  THE  CARE  OF 
MISDEMEANANTS. 

Kansas  City  municipal  farm.  Half  a  dozen  years  ago  just  such  con- 
ditions as  we  have  been  describing  obtained  in  Kansas  City.  But  the 
new  Board  of  Public  Welfare  was  awake  to  the  needs  of  unfortunate 
men.  It  conceived  the  idea  of  healthful,  outdoor  work  for  violators  of 
municipal  ordinances.  A  tract  of  land  was  purchased  and  prisoners 
were  set  to  work  upon  it.  Under  the  direction  of  skilled  laborers  they 
erected  buildings,  laid  out  roads  and  tilled  the  soil. 

When  a  prisoner  is  sent  down  to  the  farm,  he  is  first  given  a  bath,  a 
physical  examination  and  a  clean  outfit  of  clothing.  If  he  is  sick,  he  is 
taken  to  the  hospital  ward.  If  he  is  able  to  work,  he  is  assigned  to  one 
of  the  squads.  The  work  is  adapted  so  far  as  possible  to  the  man's 
physical  ability  and  his  previous  training  or  occupation.  While  he  is 
being  examined  and  given  an  appropriate  task,  his  own  clothing  is  sent 
downstairs  to  be  overhauled.  His  shirts  and  underwear  are  washed  and 
ironed.  His  suit  is  pressed,  and  all  are  neatly  folded  and  laid  away  in 
a  drawer  to  await  the  day  of  the  man's  discharge. 

The  men  work  about  eight  hours  a  day,  and  in  their  leisure  time  may 
gather  in  the  dining  room  to  read.  Some  remain  in  their  dormitories 
to  sing  and  play  on  musical  instruments.  Splendid  order  always  pre- 
vails, for  those  who  abuse  their  privilege  are  reduced  to  second  grade 
and  are  deprived  of  these  advantages.  The  men  feel  that  the  work  they 
do  is  useful  and  take  pride  in  it.  They  feel  that  the  superintendent  is 
for  them  and  support  him  all  the  time. 

While  the  stay  is  very  brief — the  average  sentence  being  thirty  days — 
some  good  results  are  obtained.  Physical  examinations  show  gains  in 
weight  and  generally  improved  health.  When  the  men  go  out,  they  are 
physically  able  to  work,  they  have  a  respectable  suit  of  clothes  to  wear, 
and  have  some  chance  of  finding  a  job.  Contrast  such  a  one  with  the 
ordinary  man  released  from  a  California  jail.  Here  the  discharged 
misdemeanant  is  unfit  for  work.  His  muscles  are  soft  from  idleness 
and  his  lungs  are  filled  with  bad  air,  his  clothes  are  shabby,  his  self- 
respect  is  gone.  He  is  not  reformed.  He  is  often  broken-down  and 
disheartened. 

The  financial  aspect  of  the  Kansas  City  farm  has  received  most  care- 
ful consideration.  The  institution  is  nearly  self-sustaining.  In  the 
fiscal  year  ending  April,  1913,  its  books  showed  an  actual  profit.  The 
following  statement  is  taken  from  the  Fourth  Annual  Report  of  the 
Board  of  Public  Welfare,  page  345 : 


MODERN"    JXSTHTTIOXS    FOR    MISDEMEANANTS.  103 

MUNICIPAL  FARM. 
FINANCIAL  REPORT. 
Expenses. 

Material  for  permanent  improvements $25,01508 

Current  expenses  _.: 89,187  71 

Pay  roll 20,097  14 

Paid  for  special  skilled  labor  and  contract  work 4,573  08 


$89,473  04 
Profits. 

Combined  cost  and  values. 

Cost  Value 

Permanent  improvements  (material) $25,015  08      $85,093  GO 

Cash  credits,  farm  produce,  etc 2,104  90 

Value  of  inventory  increase  during  fiscal  year  1912-1913-     2,700  78 

Pay  roll '_ 20,097  14 

Paid  special  skilled  labor  and  contract  work 4,573  08 

Clothing,  provisions,  tools,  charity,  etc 39,187  74 


$89,473  04  $90,018  40 
Credits  for  Charity. 

Cash  paid  out,  aid  for  prisoners'  families $1,944  00 

Cash  paid  out  to  prisoners  leaving  farm 131  00 


$89.473  04      $92.093  4-0 

Value $92.093  40 

Cost    _  89,473  04 


Net  profit  for  year $2,020  30 

Indiana  state  farm.  The  legislature  of  Indiana  established  a  state 
institution  for  the  care  of  misdemeanants  whose  sentence  would  ordi- 
narily l>o  60  days  or  more  in  a  county  jail.  A  farm  of  1,600  acres  was 
purchased.  In  reporting  on  this  at  the  National  Conference  of 
Charities  and  Corrections  in  1915, -Mr.  Demarchus  C.  Brown,  member 
of  the  Indiana  Board  of  State  Charities,  said: 

"When  the  superintendent  was  appointed  a  certain  number  of 
prisoners  from  the  state  prison  at  Michigan  City,  and  some  from 
the  reformatory  at  Jefferson ville,  were  sent  to  the  farm,  and, 
making  their  residence  in  tents,  they  have  begun  work  to  prepare 
buildings  for  the  use  of  the  inmates.  The  men  who  were  sent  were 
carpenters,  bricklayers,  tin  workers,  etc.,  who  could  intelligently 
put  up  the  buildings.  Some  of  these  buildings  are  now  ready. 
They  are  inexpensive,  but  will  fulfill  their  purpose  thoroughly. 
This  is  true  because  the  object  will  be  to  have  the  men  outdoors 
IIM^I  of  the  time.  Some  men  have  already  been  sent  from  the 
various  police  courts  to  this  farm. 


104  STATE   BOARD   OF    CHARITIES   AND    CORRECTIONS. 

"After  seeing  men  lying  in  jails  for  months  and  months,  with 
nothing  to  do  but  brood  and  plan  other  crimes,  it  was  a  matter  of 
actual  joy  to  the  observer  to  see  these  men  digging  the  soil,  to  see 
them  in  good  health,  enjoying  their  meals  and  learning  a  trade,  and 
also  reimbursing  the  state  for  the  expense  to  which  it  had  gone.  It 
is  a  complete  revolution  from  the  former  system  for  misdemeanants. 
The  marvel  is  that  we  have  been  so  long  reaching  it,  and  the  further 
marvel  is  that  there  are  county  officials  in  the  state  who  are  strongly 
opposed  to  it  even  yet.  But,  after  it  is  thoroughly  established  and 
worked  out,  I  believe  the  people  will  never  want  a  change.  The 
expense  connected  with  such  an  institution,  inasmuch  as  the  farm 
itself  will  supply  nearly  everything,  will  be  comparatively  small, 
and  the  humanitarian  results  will  be  correspondingly  large. 

"The  time  may  come — and  we  trust  it  may  come  soon — when  it 
will  be  necessary  to  establish  other  such  farms  in  different  parts  of 
the  state  and  to  require  all  misdemeanants,  not  merely  those  under 
sixty-day  sentences,  to  be  sent  to  such  farms."1 

Ontario  provincial  farm.  Dr.  J.  T.  Gilmour,  superintendent  of  the 
Central  Prison  at  Toronto,  also  has  charge  of  the  farm  at  Guelph.  He 
said  in  1914  at  Memphis : 

"We  commenced  farm  work  four  years  ago  this  spring.  Our 
farm  consists  of  840  acres.  It  is  fifty  miles  from  Toronto.  We 
commenced  first  by  taking  out  fourteen  men  and  two  officers,  then 
increased  it  to  fifty  men,  and  then  built  a  cheap  frame  building  in 
which  to  house  a  hundred  and  fifty.  For  the  last  two  years  we 
have  had  an  average  population  of  three  hundred.  Our  average 
term  is  one  year  on  the  farm.  We  haven 't  a  gun  nor  a  weapon  of 
any  kind  whatever.  We  never  have  had  and  we  never  expect  to 
have.  The  men  that  come  to  us  range  in  age  from  sixteen  to  sixty, 
and  are  sent  to  us  for  all  the  calendar  of  crimes  known  except  the 
great  crime  of  murder.  We  have  learned  this,  that  these  men  are 
weak  and  can  be  controlled,  as  Mr.  Whittaker  controls  them,  by 
firm  and  kindly  supervision. 

"What  these  men  want  is  direction  and  help.  We  conduct  a 
labor  bureau  in  connection  with  our  institution  and  no  man  has 
gone  out  in  the  last  twelve  years  who  needed  work  and  was  willing 
to  take  it  but  we  had  a  situation  awaiting  him.  *  *  * 

"Less  than  two  per  cent  of  our  men  escape.  Our  farm  is  in  the 
open  country,  with  no  walls,  no  stockade,  no  barbed  wire,  but  they 
are  under  continuous  supervision  day  and  night.  We  operate  a 
stone  quarry,  and  built  our  lime  kiln.  We  have  our  stone  crusher, 
our  brick  plant  turning  out  twenty-five  thousand  a  day.  with  fifty 

Proceedings  Nat.  Conf.  Char.  &  Corr.  1915,  pp.  373-4. 


MODERN    INSTITUTIONS   FOR    MISDEMEANANTS.  105 

men  and  two  officers.  We  have  our  orchards.  We  milk  seventy 
cows  every  day.  We  have  probably  twenty-five  teams  working  all 
the  time.  We  have  a  kitchen  garden  of  ten  acres,  and  there  are 
always  enough  men  who  can  be  absolutely  trusted  on  the  outside  to 
carry  on  the  work  economically. ' n 

District  of  Columbia  workhouse.  At  the  same  session  of  the  Na- 
tional Conference,  Mr.  W.  H.  Whittaker  of  Occoquan,  Virginia, 
described  his  institution : 

"The  District  of  Columbia  farm  less  than  four  years  ago  was  a 
wilderness  in  the  hills  of  Virginia,  twenty  miles  south  of  Washing- 
ton. The  farm  consists  of  1,150  acres  of  land,  costing  the  govern- 
ment $18  per  acre.  On  this  land  we  have  constructed  thirty 
buildings,  consisting  of  dormitories,  dining  rooms,  lounging  halls, 
hospital,  horse  and  dairy  barns.  These  are  all  one-story  buildings, 
made  of  wood,  with  a  view  of  giving  ample  light  and  ventilation. 
The  plan  for  the  prisoners  is  that  of  the  congregate  or  dormitory 
system,  having  no  cells,  locks  or  bars  about  the  institution.  Two 
hundred  prisoners  are  taken  care  of  during  the  night  in  each 
dormitory,  and  as  we  have  600  male  prisoners  this  requires  three 
buildings.  Cots  are  arranged  side  by  side  in  these  dormitories  on 
raised  platforms,  and  sufficient  bedding,  consisting  of  mattress, 
sheets  and  pillows,  blankets  and  comforts,  is  given  to  each  prisoner. 
All  the  buildings  are  steam  heated  and  electric  lighted  and  have 
ample  water,  both  hot  and  cold,  with  modern  sewerage. 

"During  the  evening  and  after  the  day's  work  is  done  and  on 
Sundays,  the  men  are  taken  to  a  large  building  known  as  the  Rest 
Hall  and  Library,  where  they  are  permitted  to  talk,  play  checkers, 
read  the  daily  newspapers,  which  are  bought  for  them  by  the  man- 
agement, and  they  have  access  to  a  library  of  over  4,000  volumes. 
On  summer  evenings  and  on  Sundays  the  inmates  are  permitted  to 
take  the  benches  out  into  the  yard  where  it  is  possible  to  enjoy  more 
freedom  and  have  an  abundance  of  fresh  air.  In  one  of  the  build- 
ings referred  to  there  is  a  shower  bath  and  arrangements  where  the 
inmates  make  their  toilets.  In  this  building  125  men  can  be  taken 
care  of  at  one  time.  We  have  no  wash  basins  but  have  a  faucet  for 
each  man  and  the  men  are  all  furnished  with  individual  towels  and 
soap. 

The  fact  that  prisoners  are  sent  to  us  on  short  sentences,  the  time 
now  being  from  fifteen  days  to  three  years,  our  average  sentence 
bcinjr  thirty-five  days,  makes  it  very  necessary  and  important  that 
sanitary  conditions  should  be  closely  looked  after.  Prom  10  to  15 

'Proc-eediiiKs  Xat.  C'onf.  Char.  &  Corr.  1914,  pp.  48-50. 


106  STATE   BOARD   OP    CHARITIES   AND    CORRECTIONS. 

per  cent  of  the  prisoners  sent  us,  when  received,  have  vermin  on 
their  person.  This,  however,  is  looked  after  so  closely  that  though 
we  handle  from  five  to  six  thousand  people  a  year  we  are  absolutely 
free  from  vermin  in  all  of  the  thirty  buildings.  In  working 
prisoners  we  give  from  fifteen  to  twenty  men  to  an  officer.  His 
part  is  to  direct  this  number  in  a  humane  and  intelligent  manner 
and  to  have  them  understand  it  is  our  purpose  to  be  helpful.  With 
such  methods  we  have  very  little  trouble  so  far  as  discipline  is 
concerned. 

Work  on  this  1,150  acres  of  land  consists  of  building  roads,  con- 
structing buildings,  farming,  making  brick,  crushing  stone,  build- 
ing and  repairing  wagons,  painting  and  whitewashing  the  build- 
ings, poultry  raising,  dairying,  etc.  At  the  present  time  we  are 
working  seventy  horses.  These  are  all  cared  for  by  the  inmates, 
without  an  officer  with  them,  and  neither  the  farm  nor  the  buildings 
are  enclosed  by  so  much  as  a  fence.  We  lose  very  few  prisoners  by 
escaping,  less  on  an  average  than  two  per  month.  Our  results 
show  we  get  a  fair  day's  work  from  each  of  our  able-bodied 
inmates."1 

The  scheme  is  practical.  The  above  citations  are  included  in  this 
bulletin  to  make  clear  to  the  reader  that  the  plan  proposed  for  Cali- 
fornia is  practical  and  has  already  been  tried  out  successfully  in  other 
states.  Others  might  have  been  mentioned,  but  these  should  silence  all 
doubt  as  to  the  feasibility  of  a  system  of  state  institutions  for  misde- 
meanants. Financially  as  well  as  socially  this  would  be  a  tremendous 
improvement  over  the  present  county  jail  system. 

Proceedings  Nat.  Conf.  Char.  &  Corr.  1914,  pp.  46-47. 


I.ANVS    AFFECTING    COUNTY    JAILS.  107 

LAWS  SPECIALLY  AFFECTING  COUNTY  JAILS. 

Supervision  by  State  Board  of  Charities  and  Corrections. 

Inspection   and   investigation. 

Chap.  683,  Stats.  1911. 

SEC.  3.  The  board  is  hereby  empowered  and  authorized,  and  it  shall 
lie  its  duty  as  a  whole,  or  by  committee,  or  by  its  secretary,  or  other 
agent  whom  it  may  authorize,  to  investigate,  examine,  and  make  reports 
upon  the  charitable,  correctional,  and  penal  institutions  of  the  state, 
including  the  state  hospitals  for  the  insane,  of  the  counties,  cities  and 
counties,  cities,  and  towns  of  the  state,  and  such  public  officers  as  are  in 
any  way  responsible  for  the  administration  of  public  funds  used  for  the 
relief  or  maintenance  of  the  poor.  All  the  persons  or  officers  in  charge 
of  or  connected  with  such  public  institutions,  or  with  the  administration 
of  said  funds,  are  hereby  required  to  furnish  to  the  board  or  its  com- 
mittee or  secretary  such  information  and  statistics  as  they  may  request 
or  require,  and  allow  said  board,  committee,  or  secretary  free  access  to 
all  departments  of  such  institutions  and  to  all  of  their  records.  *  *  * 

Plans  for  new  jails   and   for  alterations. 

*  *  *  All  plans  of  new  buildings,  or  parts  of  buildings  for  any  of 
the  public  institutions  coming  under  the  provisions  of  this  section,  or 
any  additions  or  alterations  in  such  buildings  shall,  before  their 
adoption  by  the  proper  officials,  be  submitted  to  the  board  for  sugges- 
tions and  criticism. 

Reports  and  special   information. 

SEC.  6.  Any  public  officer,  superintendent,  manager  or  person  in 
charge  of  any  said  public  institution,  or  with  the  administration  of  said 
funds,  who  refuses  or  neglects  'to  furnish  said  board,  its  committee  or 
secretary,  the  information  and  statistics  which  they  may  request  or 
require  shall  be  subject  to  a  forfeiture  of  fifty  dollars,  to  be  recovered 
as  provided  in  section  4  of  this  act  for  disobedience  of  a  subpoena. 

Records  prescribed. 

Chap.  338,  Stats.  1913. 

SECTION  1.  It  is  hereby  made  the  duty  of  the  state  board  of  charities 
and  corrections  to  prescribe  forms  of  record  for  the  use  of  the  superin- 
tendents of  county  hospitals  and  almshouses,  and  jailers  in  charge  of 
county  jails  and  city  prisons,  in  keeping  the  records  of  persons  received 
into  or  discharged  from  such  county  hospitals,  almshouses,  jails  and 
city  prisons. 

SEC.  2.  Books  of  record  for  the  records  so  prescribed  by  said  state 
board  of  charities  and  corrections  may  be  printed  at  the  expense  of  said 
board  and  furnished  to  such  county  hospitals  and  almshouses,  county 
jails  and  city  prisons,  at  the  cost  thereof. 

SEC.  3.  It  shall  be  the  duty  of  the  superintendent  in  charge  of  any 
such  county  hospital  or  almshouse  and  the  jailer  in  charge1  of  any  such 
jail  or  city  prison  to  keep  the  records  prescribed  by  Ihe  stair  board  of 
charities  and  corrections  as  fully  and  completely  as  possible,  and  any 
such  superintendent  or  jailer  who  neuleds  and  fails  to  keep  the  records 
thus  prescribed  shall  be  guilty  of  a  misdemeanor. 


108  STATE   BOARD   OF    CHARITIES   AND    CORRECTIONS. 

Segregation  of  Prisoners. 

Penal  Code,  Sees.  1598  and  1599. 

§  1598.  Rooms  required  in  county  jails.  Each  county  jail  must  con- 
tain a  sufficient  number  of  rooms  to  allow  all  persons  belonging  to  either 
one  of  the  following  classes  to  be  confined  separately  and  distinctly  from 
persons  belonging  to  either  of  the  other  classes : 

1.  Persons  committed  on  criminal  process  and  detained  for  trial ; 

2.  Persons  already  convicted  of  crime  and  held  under  sentence; 

3.  Persons  detained  as  witnesses  or  held  under  civil  process,  or  under 
an  order  imposing  punishment  for  a  contempt ; 

4.  Males  separately  from  females. 

§  1599.  Prisoners  to  be  classified.  Persons  committed  on  criminal 
process  and  detained  for  trial,  persons  convicted  and  under  sentence, 
and  persons  committed  upon  civil  process,  must  not  be  kept  or  put  in 
the  same  room,  nor  shall  male  and  female  prisoners  (except  husband 
and  wife)  be  kept  or  put  in  the  same  room. 

Removal  of  Prisoners  When  Jail  is  Unfit. 

Penal  Code,  Sec.  1603. 

§  1603.  When  jail  in  contiguous  county  may  be  used.  When  there 
is  no  jail  in  the  county,  or  when  the  jail  becomes  unfit  or  unsafe  for  the 
confinement  of  prisoners,  the  judge  of  the  superior  court  may,  by  a 
written  order  filed  with  the  county  clerk,  designate  the  jail  of  a  con- 
tiguous county  for  the  confinement  of  the  prisoners  of  his  county,  or  of 
any  of  them,  and  may  at  any  time  modify  or  vacate  such  order. 

Employment  of  Prisoners. 

Penal  Code,  Sec.  1613. 

§  1613.  Prisoners  may  be  required  to  labor.  Persons  confined  in  the 
county  jail  under  a  judgment  of  imprisonment  rendered  in  a  criminal 
action  or  proceeding,  may  be  required  by  an  order  of  the  board  of 
supervisors  to  perform  labor  on  the  public  works  or  ways  in  the  county. 

Political  Code,  Sec.  4041,  subd.  29. 

29.  Work  prisoners.  To  provide  for  the  working  of  prisoners,  con- 
fined in  the  county  jail,  under  judgment  of  conviction  of  misdemeanor, 
under  the  direction  of  some  responsible  person,  to  be  appointed  by  the 
sheriff,  whose  compensation  shall  not  exceed  one  hundred  dollars  per 
month,  upon  the  public  grounds,  roads,  streets,  alleys,  highways,  or 
public  buildings,  or  in  such  other  places  as  may  be  deemed  advisable, 
for  the  benefit  of  the  county. 

Credits  for  Good  Behavior. 

Penal  Code,  Sec.  1614. 

§  1614.  Rules  and  regulations  for  the  performance  of  labor.  Credits 
for  good  behavior  of  prisoner  confined  in  county  jail.  The  board  of 
supervisors  making  such  order  may  prescribe  and  enforce  the  rules  and 
regulations  under  which  such  labor  is  to  be  performed,  and  provide 


LAWS   AFFECTING   COUNTY   JAILS.  109 

clothing  of  such  a  distinctive  character  for  said  prisoners  as  such  board, 
in  its  discretion,  may  deem  proper.  For  each  month  in  which  the 
prisoner  appears,  by  the  record,  to  have  given  a  cheerful  and  willing 
obedience  to  the  rules  and  regulations,  and  that  his  conduct  is  reported 
by  the  officer  in  charge  of  the  jail  to  be  positively  good,  five  days  shall, 
with  the  consent  of  the  board  of  supervisors,  be  deducted  from  his  term 
of  sentence. 

Care  of  Women  Prisoners. 

Penal  Code,  Sec.   1616. 

§  1616.  Care  of  female  prisoners  in  county  jails.  Whenever  any 
female  prisoner  or  prisoners  are  confined  in  any  county  jail  in  the  state, 
and  no  regular  jail  matron  has  been  appointed,  there  shall  be  designated 
by  the  sheriff  some  suitable  woman  who  shall  have  immediate  care  of 
such  female  prisoner  or  prisoners.  Such  female  prisoners  shall  be  so 
kept  that  they  can  not  see  or  be  seen  by,  or  converse  with,  any  male 
prisoners  confined  in  said  jail,  and  it  shall  be  unlawful  for  any  male 
officer  or  jailer  to  search  the  person  of  any  female  prisoner,  or  to  enter 
into  the  room  or  cell  occupied  by  any  female  prisoner,  except  in  the 
company  of  such  matron  or  woman  having  the  care  of  such  female 
prisoner. 

Care  of  Juvenile  Prisoners. 

Chap.  631,  Stats.  1915,  Sec.   14. 

*  *  *  No  court,  judge,  magistrate  or  peace  officer  shall  commit  a 
person  under  sixteen  years  of  age  to  any  jail  or  prison,  before  trial  and 
conviction,  or  detain  such  person  therein ;  but  if  any  such  person  is  not 
released  pending  such  hearing,  he  may  be  committed  to  the  care  and 
custody  of  a  sheriff,  constable  or  other  peace  officer,  who  shall  keep  such 
person  in  a  detention  home  or  some  other  suitable  place  outside  of  the 
enclosure  of  any  jail  or  prison,  as  the  court  may  direct.  When  any 
person  under  sixteen  years  of  age  shall  be  sentenced  to  confinement  in 
any  institution  to  which  adult  convicts  or  prisoners  are  sentenced  or 
confined,  it  shall  be  unlawful  to  confine  such  person  in  the  same  room, 
yard  or  enclosure  with  such  adult  convicts  or  prisoners,  or  to  permit 
such  person  to  come  or  remain  in  contact  with  such  adult  convicts  or 
prisoners. 

Food,  Clothing1,  and  Bedding  Furnished  by  Sheriff. 

Penal  Code,  Sec.   1611. 

§  1611.  Sheriff  to  receive  all  persons  duly  committed.  The  sheriff 
must  receive  all  persons  committed  to  jail  by  competent  authority,  and 
provide  them  with  necessary  food,  clothing,  and  bedding,  for  which  he 
shall  be  allowed  a  reasonable  compensation,  to  be  determined  by  the 
board  of  supervisors,  and,  except  as  provided  in  the  next  section,  to  be 
paid  out  of  the  county  treasury. 


110  STATE   BOARD   OF   CHARITIES   AND    CORRECTIONS. 

Parole  of  Prisoners  in  City  and  County  Jails. 

Chap.  230,   Stats.   1913. 

SECTION  1.  A  board  of  three  parole  commissioners  for  each  county 
in  this  state,  consisting  of  the  sheriff  and  the  district  attorney  of  each 
said  county  and  the  chief  of  police  (or  other  chief  or  sole  peace  officer) 
of  every  city  which  now  is  or  hereafter  may  be  the  county  seat  of  any 
such  county,  is  hereby  created  for  each  such  county,  which  board  shall 
and  must  as  a  board  of  parole  commissioners  for  and  in  each  county,  and 
make  and  establish  rules  and  regulations  under  which  any  prisoner 
who  is  now  or  hereafter  may  be  imprisoned  in  the  county  jail  of  said 
county,  or  in  the  city  jail  of  any  city  in  any  county,  or  in  any  such  jail 
as  the  prisoner  of  any  city,  or  in  any  other  jail  in  any  such  county,  after 
judgment  of  conviction  for  the  commission  of  a  misdemeanor,  may  be 
allowed  to  go  upon  parole  outside  of  any  jail  in  which  he  is  or  may  be 
hereafter  imprisoned,  but  to  remain,  while  on  parole,  in  the  legal  cus- 
tody and  under  the  control  of  the  board  of  parole  commissioners  estab- 
lishing the  rule  and  regulations  for  his  parole,  and  subject,  at  any  time, 
to  be  taken  back  within  the  enclosure  of  any  such  jail.  Full  power  to 
make,  establish  and  enforce  such  rules  and  regulations,  and  to  retake 
and  imprison  any  prisoner  so  upon  parole,  is  hereby  conferred  upon 
each  such  board  of  parole  commissioners ;  and  its  written  order  shall  be 
a  sufficient  warrant  for  all  officers  named  in  such  order  to  authorize 
them,  or  any  of  them,  to  return  to  actual  custody  any  conditionally 
released  or  paroled  prisoner.  It  shall  be  and  is  hereby  made  the  duty 
of  all  chiefs  of  police,  marshals  of  cities  and  villages,  sheriffs  of  counties, 
constables,  and  all  other  police  and  peace  officers  of  this  state  to  execute 
any  such  order  in  like  manner  as  ordinary  criminal  process.  If  any 
prisoner  so  paroled  shall  leave  the  county  in  which  he  was  or  is  or  here- 
after may  be  so  imprisoned  without  permission  from  the  board  of  parole 
commissioners  granting  his  parole,  he  shall  be  arrested  as  an  escaped 
prisoner  and  held  as  such. 

SEC.  2.  The  board  of  parole  commissioners  created  by  this  amend- 
ment of  said  act  shall  be  the  successor  to  and  the  substitute  for  the  board 
of  parole  commissioners  specified  in  section  1  of  said  act  prior  to  this 
amendment  thereof,  and  shall  have,  possess  and  enforce  the  powers, 
rights  and  duties  as  to  prisoners  paroled  by  such  former  board,  as  such 
former  board  had,  possessed  and  could  enforce.  Upon  the  taking  effect 
of  this  act;  such  former  board  of  parole  commissioners  shall  cease  to 
exist. 

The  above  is  by  no  means  a  complete  list  of  the  laws  which  affect  the 
administration  of  county  jails,  but  those  cited  are  worthy  of  special 
attention.  Of  this  list  the  statutes  most  frequently  violated  are  those 
pertaining  to  segregation  of  prisoners  and  the  care  of  women  and 
juveniles.  The  provision  for  removal  of  prisoners  from  an  unfit  jail  is 
rarely  taken  advantage  of,  although  there  are  numerous  cases  where  this 
might  quite  properly  be  done. 

The  feeding  of  prisoners  gives  rise  to  a  wide  divergence  of  opinion  as 
to  what  constitutes  a  "reasonable  compensation,"  for  the  allowance 


CARE    AND    CONFINEMENT    OF   DELINQUENTS.  Ill 

varies  from  10  cents  a  day  in  Santa  Clara  County  to  $1.05  in  El  Dorado 
County. 

The  following  bill  was  introduced  into  the  1915  legislature  and 
received  favorable  consideration  from  the  senate  committee  on  prisons 
and  reformatories,  but  failed  for  financial  reasons : 

Senate  Bill  No.  317. 

An  act  to  provide  for  the  care  and  confinement  of  certain  delinquents  in 
correctional  institutions,  to  establish  two  correctional  institutions, 
to  provide  for  the  government  thereof,  and  making  an  appropria- 
tion therefor. 

The  people  of  the  State  of  California  do  enact  as  follows: 

SECTION  1.  There  are  hereby  established  two  correctional  institutions 
to  be  known  as  the  northern  state  farm  and  the  southern  state  farm,  the 
first  to  be  located  north  of  the  second  standard  parallel  south  of  Mt. 
Diablo  base  line,  and  the  other  south  of  such  parallel,  in  locations  that 
will  best  serve  the  interests  of  the  state,  for  the  confinement  and  care  of 
such  male  prisoners  as  are  now  sentenced  to  serve  terms  of  imprison- 
ment in  county  jails. 

SEC.  2.  The  object  of  such  farms  shall  be  to  secure  state  institutions 
for  the  detention  and  security  of  persons  sentenced  thereto  as  herein 
provided,  and  giving  to  them  such  industrial  occupation  as  will  tend  to 
improve  their  general  physical,  mental  and  moral  welfare ;  said  indus- 
trial occupation  shall  be  carried  on  in  the  open  air  as  far  as  practicable. 

SEC.  3.  The  management  of  said  institutions  shall  be  by  a  board  of 
five  managers,  which  shall  be  known  as  "the  board  of  managers  of  state 
farms,"  to  be  appointed  by  the  governor  by  and  with  the  advice  and 
consent  of  the  senate  for  a  term  of  four  years,  except  that  two  members 
(if  the  first  board  appointed  shall  hold  office  for  a  term  of  two  years  and 
thereafter  their  successors  shall  be  appointed  for  a  term  of  four  years. 
The  governor  shall  designate  the  two  members  appointed  for  the  short 
term  in  his  commissions  of  appointment.  Whenever  a  vacancy  occurs 
the  appointment  to  fill  the  same  shall  be  for  the  remainder  of  the  term. 
Such  managers  shall  receive  no  compensation  for  their  services,  but 
shall  be  allowed  their  reasonable  traveling  and  other  official  expenses. 

SEC.  4.  The  board  of  managers  shall  appoint  a  general  superin- 
tendent, a  superintendent  of  agriculture,  for  each  of  said  farms  and 
.such  other  officers  and  keepers  as  may  bo  .necessary  for  the  proper 
management  thereof. 

SEC.  5.  It  shall  be  the  duty  of  the  board  of  managers  lu  seled.  ;ui<l 
with  the  approval  of  the  state1  bo;ird  of  control,  to  purchase  not  less  than 
Ihree  hundred  acres  of  land  for  each  of  said  farms. 


112  STATE   BOAED   OP    CHARITIES   AND    CORRECTIONS. 

SEC.  6.  After  the  purchase  of  such  sites,  the  board  of  managers  shall 
construct  such  buildings  as  may  be  necessary  for  the  reception  and  cus- 
tody of  inmates.  As  soon  as  said  farms  are  ready  for  the  reception  of 
inmates,  it  shall  be  the  duty  of  the  board  of  managers  to  officially  notify 
the  governor  of  that  fact.  It  shall  be  the  duty  of  the  governor  upon 
receipt  of  such  notification  to  issue  his  proclamation  declaring  that  such 
farm  or  farms  are  ready  to  receive  inmates  and  upon  the  issuance  of 
such  proclamation  it  shall  be  lawful  to  sentence  to  such  farm  or  farms, 
any  persons,  convicted  of  the  violation  of  any  law  as  hereinafter 
provided. 

SEC.  7.  Upon  the  issuance  of  the  proclamation  by  the  governor,  that 
said  state  farms,  or  either  of  them,  is  ready  to  receive  inmates,  the 
judges  of  the  superior  courts,  police  judges,  justices  of  the  peace  and 
other  magistrates,  except  as  hereinafter  provided,  shall  sentence  all  male 
persons  who  are  of  the  age  of  eighteen  years,  and  who  have  been  con- 
victed of  the  violation  of  any  law  or  ordinance,  the  punishment  for 
which  as  now  fixed  by  law  may  be  imprisonment  in  any  county  jail  or 
workhouse  for  sixty  days  or  more,  to  the  state  farm  in  the  district  as 
hereinbefore  described  in  which  the  courthouse  of  said  county  may  be 
located ;  provided,  however,  that  nothing  herein  contained  shall  be  con- 
strued as  preventing  the  imposition  of  a  fine  in  lieu  of  imprisonment 
where  the  same  is  now  provided  by  law;  and  provided,  further,  that 
any  male  person  who  shall  be  sentenced  upon  conviction  in  any  of  said 
courts  to  pay  a  fine  and  to  be  imprisoned  until  such  fine  is  paid,  shall  if 
such  fine  exceeds  the  sum  of  sixty  dollars,  and  is  not  paid  within  two 
days  after  said  fine  is  imposed,  be  taken  to  said  state  farm  and  be  there 
confined  until  such  judgment  is  satisfied.  This  section  shall  not  be  con- 
strued to  prevent  any  court  in  its  .discretion  from  committing  any 
person  to  either  the  Preston  School  of  Industry  or  Whittier  State  School 
or  from  placing  any  such  person  upon  probation  as  is  provided  by  law. 

SEC.  8.  The  board  of  managers  shall  make  all  needful  rules  and 
regulations  for  the  transaction  of  its  business  and  for  the  management 
and  government  of  said  farms  and  shall  determine  the  number,  title  and 
duties  of  all  officers  and  employees,  except  as  herein  otherwise  provided, 
and  shall  fix  the  salaries  thereof. 

SEC.  9.  The  superintendent  shall  before  entering  upon  the  discharge 
of  his  duties,  make  and  file  with  the  board  of  managers  an  oath  that  he 
will  faithfully  and  impartially  discharge  the  same,  and  file  a  bond  in  the 
sum  of  ten  thousand  dollars  running  to  the  State  of  California,  and  with 
sureties  to  be  approved  by  said  board  conditioned  upon  the  faithful 
performance  of  his  said  duties.  He  shall  thereupon,  subject  to  the 
regulations  prescribed  by  the  board,  be  invested  with  the  custody  of  the 
lands,  buildings  and  all  other  property  belonging  to  and  under  the 


CARE   AND   CONFINEMENT  OF   DELINQUENTS.  113 

control  of  said  farm,  subject  to  the  discretion  of  said  board  and  shall 
account  to  it  in  such  manner  as  it  may  require  for  all  property 
entrusted  to  him  and  all  moneys  received  by  him  as  such  superintend- 
ent, for  said  farm  or  any  of  its  inmates.  He  shall  appoint,  except  as 
hereinbefore  provided,  all  officers  and  employees  of  said  farm  who  shall 
hold  office  at  his  pleasure,  except  as  otherwise  provided  by  law. 

SEC.  10.  The  sentence  of  persons  to  either  of  said  state  farms,  from 
any  county  whose  courthouse  is  more  than  two  hundred  and  fifty  miles 
by  nearest  railroad  connection  from  either  of  said  state  farms,  shall  be 
optional  with  the  court  making  the  sentence. 

SEC.  11.  It  is  hereby  made  the  duty  of  police  courts  and  justices  of 
the  peace,  within  three  days  after  any  person  has  been  sentenced  by 
them  to  either  of  said  state  farms,  to  file  a  transcript  of  their  docket, 
showing  the  sentence  in  such  case,  with  the  clerk  of  the  superior  court 
of  the  county  in  which  they  reside. 

SEC.  12.  It  shall  be  the  duty  of  the  sheriff  of  each  county  to  convey 
to  said  state  farms  all  persons  sentenced  thereto  within  his  county  and 
he  shall  receive  therefor  such  compensation  as  may  be  prescribed  by  law 
for  conveying  prisoners  to  the  state  prisons,  such  compensation  to  be 
paid  by  the  county. 

SEC/  13.  The  board  of  managers  may  at  any  time  change  the  line  of 
division  between  the  two  districts  as  herein  prescribed,  and  may  order 
that  any  county  may  sentence  prisoners  to  whichever  of  said  farms  is 
most  convenient  of  access  or  can  best  care  for  such  prisoners ;  and  unless 
otherwise  ordered,  counties  on  the  dividing  line  herein  described  shall 
be  considered  in  that  district  in  which  the  county  courthouse  is  located. 

SEC.  14.  All  prisoners  committed  to  said  state  farms  shall  be 
employed  in  work  on  or  about  its  buildings,  roads  and  any  work  of  the 
horticulture  or  agricultural  character  or  in  dairy  work  or  such  other 
work  as  may  be  practicable. 

SEC.  15.  For  each  and  every  person  hereinafter  sentenced  to  either 
of  said  farms,  the  county  from  which  the  sentence  is  made  shall  pay 
into  the  state  treasury  the  sum  of  twelve  dollars  per  month  during  the 
time  .said  person  is  held  at  said  farm  and  at  that  rate  for  each  fraction 
of  a  month. 

SEC.  16.  It  is  hereby  made  the  duty  of  the  clerk  of  the  superior 
court  of  the  county  to  certify  to  the  county  auditor  during  the  months 
of  April  and  November  of  each  and  every  year  the  names,  ages  and 
terms  of  sentence  of  all  prisoners  sentenced  to  either  of  said  state  farms 
for  the  period  of  six  months  previous  to  the  first  days  of  said  April  and 
November  of  each  year,  and  the  time  served  by  each  of  said  prisoners  at 
such  state  farms,  and  the  amounts  due  from  the  county  by  reason 
thereof  to  the  slate  treasurer  for  such  period  of  six  months.  The  said 
8—23457 


114  STATE   BOAED   OF   CHARITIES   AND    CORRECTIONS. 

clerk  shall  also  file  a  duplicate  of  such  certificate  with  the  county 
treasurer,  and  it  is  further  made  the  duty  of  the  county  treasurer, 
during  the  settlement  or  at  the  time  of  the  settlement  with  the  state, 
during  the  months  of  May  and  December  of  each  year,  to  pay  to  the 
state  treasurer,  through  the  state  controller,  the  amount  so  found  to  be 
due  to  the  state  by  reason  of  such  sentences. 

SEC.  17.  It  is  hereby  made  the  duty  of  the  superintendent  of  each 
of  said  farms  to  send  by  mail  to  the  clerk  of  the  superior  court  of  the 
county,  between  the  first  and  fifth  days  of  April  and  November  of  each 
year  the  names  of  all  persons  at  his  said  farm  under  sentence  from  that 
county  during  any  time  within  the  six  months  previous  to  the  first  days 
of  said  April  and  November,  and  the  length  of  time  during  the  said 
period  of  six  months  that  each  of  said  persons  has  remained  at  his  said 
farm,  and  if  any  of  said  persons  have  been  discharged,  paroled  or  have 
escaped,  that  fact  and  the  date  thereof. 

SEC.  18.  It  shall  also  be  the  duty  of  the  superintendent  of  each  of 
said  farms  to  transmit  to  the  state  treasurer,  during  the  months  of  April 
and  November  of  each  and  every  year,  a  statement  covering  the  period 
of  six  months  previous  to  the  first  days  of  said  April  and  November, 
made  up  in  the  alphabetical  order  of  counties,  giving  from  each  of  said 
counties  the  names  of  all  persons  received,  the  length  of  time  each 
person  has  remained  at  said  farm,  and  the  amount  due  from  the  county 
to  the  state  on  account  thereof,  and  also  the  total  amount  due  from  the 
county  to  the  state  by  virtue  of  such  services. 

SEC.  19.  In  case  there  is  a  discrepancy  between  the  amount  claimed 
to  be  due  from  the  state  from  any  county,  under  this  act,  by  the  county 
treasurer  and  the  superintendent  of  the  state  farm,  such  difference  shall 
be  adjusted  and  the  amount  which  shall  be  paid  fixed  by  the  state  con- 
troller. 

SEC.  20.  Upon  the  discharge  of  all  persons  from  such  farms  or  either 
of  them,  they  shall  be  furnished  with  respectable  clothing  and  trans- 
portation to  the  county  from  which  such  person  was  sentenced.  The 
cost  of  such  clothing  and  transportation  shall  be  borne  by  the  state,  and 
shall  be  included  among  the  operating  expenses  of  said  farms. 

SEC.  21.  The  board  of  managers  shall  have  power  to  grant  paroles 
to  persons  sentenced  to  such  farms,  under  such  rules  and  regulations  as 
they  may  prescribe. 

SEC.  22.  The  superintendent  of  each  of  said  farms  shall  have  power 
to  cause  to  be  detained  therein,  under  such  proper  rules  and  regulations 
as  shall  be  provided  in  accordance  with  this  act,  any  person  committed 
to  said  farm  and  to  return  to  said  state  farm  any  person  who  may  have 
escaped  therefrom. 


CARE   AND    CONFINEMENT   OP   DELINQUENTS.  115 

SEC.  23.  Every  judge  of  the  superior  court,  police  judge,  justice  of 
the  peace  or  other  magistrate,  who  shall  commit  any  person  convicted 
of  a  misdemeanor  to  either  of  said  state  farms  hereby  created,  shall 
sentence  such  person  for  an  indeterminate  period,  of  not  less  than  sixty 
days  or  more  than  one  year.  It  shall  be  the  duty  of  the  board  of 
managers  of  said  farms  to  determine  and  fix  the  period  of  detention  of 
all  persons  sentenced  to  said  farms  within  the  limits  of  the  indeter- 
minate sentence. 

SEC.  24.  There  is  hereby  appropriated  the  sum  of  one  hundred 
forty-one  thousand  dollars  for  the  purpose  of  carrying  out  the  pro- 
visions of  this  act,  of  which  the  sum  of  fifty  thousand  dollars  is 
appropriated  for  the  purchase  of  the  land  for  said  farms,  the  sum  of 
fifty  thousand  dollars  for  the  construction  of  necessary  buildings 
thereon  and  for  the  purchase  of  the  necessary  stock  and  implements, 
and  the  sum  of  forty-one  thousand  dollars  for  the  maintenance  of  said 
farms  for  the  sixty-seventh  and  sixty-eighth  fiscal  years. 


University  of  California 

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>  Hilgard  Avenue,  Los  Angeles,  CA  90024-1388 
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QL  OCT  0  8  20 


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